UNIVERSITY 

OF  CALIFORNIA 

LOS  ANGELES 


SCHOOL  OF  LAW 
LIBRARY 


Useful  Reference  Series  No.  9 


LAW,  LEGISLATIVE 

AND  MUNICIPAL  REFERENCE 

LIBRARIES 


LAW,   LEGISLATIVE 

AND    MUNICIPAL     REFERENCE 

LIBRARIES 


AN    INTRODUCTORY   MANUAL   AND 
BIBLIOGRAPHICAL   GUIDE 


BY 

JOHN  BOYNTON  KAISER,  B.L.S. 

LIBRARIAN   OF    THE    TACOMA    PUBLIC    LIBRARY 


Member  of  the  American  Political  Science  Association  and  Ameri- 
can Library  Association ;  formerly  Assistant  State  Libraria?i  in 
charge  of  Legislative  Reference  Work,  Texas  State  Library  ; 
and  Departmental  Librariafi,  Economics  and  Soci- 
ology, the  University  of  Illinois  Library. 


BOSTON 

THE  BOSTON   BOOK  COMPANY 

1914 


Copyright,  191-1 
By  the  boston  BOOK    COMPANY 

r 


The  RiierdaU  Press,  BrookUne.  Moss..  U.S.A. 


and 

n.  e>.  K. 


770231 


Contents. 

Chapter  Page 

Preface vii-xii 

I.  Law  Libraries 1-65 

Topical  Outline 1-7 

Text 7-65 

IL  Legislative  Reference  Libraries      .     .     .  66-233 

Topical  Outline 66-67 

Text 68-233 

IIL  Municipal  Reference  Libraries       .     .     .  234-343 

Topical  Outline 234-237 

Text 237-343 

Appendix 345-433 

Index 445-467 


PREFACE. 

The  present  text  aims  to  provide  for  several  possible 
groups  of  readers  an  introductory  manual  and  biblio- 
graphical guide  to  the  materials  and  methods  of  three 
types  of  related  special  libraries.  The  first  section  of 
the  book  deals  with  a  kind  of  special  library  as  old  as 
the  word  itself,  but  a  kind  which  has  received  slight 
attention  in  professional  literature,  and  one  which  is 
only  just  awakening  to  its  possibilities  for  aggressive  and 
scientific  service,  the  law  library.  The  second  and  third 
sections  deal  with  recent  developments  in  library  activi- 
ties, the  legislative  reference  library  and  the  municipal 
reference  library. 

The  law  library  must  provide  the  facts  of  existing  law 
for  those  who  must  apply  it  as  it  is,  the  judge,  the  prac- 
titioner of  law,  and  law  student.  Legislative  and  munic- 
ipal reference  libraries  aim  to  supply  one  factor  in  the 
solution  of  the  problem  of  intelligent  legislation  by  pro- 
viding in  addition  to  existing  law  the  facts  of  compara- 
tive experience,  both  to  be  used  by  law-makers  as  a 
basis  for  more  intelligent  and  scientifically  planned 
legislation. 

Some  idea  of  the  present  extent  of  these  three  library 
activities  is  gained  from  the  following  figures. 

In  a  list  of  law  libraries  and  law  departments  of  libra- 
ries where  the  law  collection  is  considerable  or  important, 
published  by  the  American  Association  of  Law  Libraries 
in  1912,  five  hundred  and  thirty-four  such  libraries  are 
credited  to  the  United  States  and  one  hundred  to  Canada. 
The  list  is  not  complete. 


vni 


Preface 


Already  thirty-four  states  have  legislative  reference 
libraries,  or  bureaus,  or  lay  claim  to  doing  to  some 
extent  legislative  reference  work.  Further  interest  in  the 
subject  is  shown  by  the  fact  that  Congress  has  for  sev- 
eral years  been  considering  the  feasibility  of  a  national 
legislative  reference  bureau  and  that  numerous  govern- 
ment documents  have  appeared  on  this  subject,  including 
a  special  report  by  the  Librarian  of  Congress,  committee 
hearings,  and  favorable  reports  by  standing  committees 
of  both  the  Senate  and  the  House.  The  American  Bar 
Association  appointed  a  special  committee  to  investigate 
these  bureaus  and  it  has  issued  an  important  report 
favoring  their  establishment.  The  American  Political 
Science  Association  has  a  similar  committee  and  devoted 
one  session  of  its  annual  meeting — December  31,  1913 
—  at  Washington,  D.  C,  to  a  discussion  of  legislative 
reference  bureaus. 

Through  only  the  most  obvious  sources  in  print  it  is 
learned  that  there  are  o^■er  seventy-five  municipal  refer- 
ence libraries,  or  bureaus,  or  other  agencies  definitely 
interested  in  municipal  research  work.  This  figure  takes 
no  account  of  the  hundreds  of  progressive  public  libraries, 
civic  organizations,  and  commercial  bodies  indirectly 
interested  or  capable  of  being  interested  in  municipal 
reference  work  through  their  existing  interest  in  civic 
betterment  and  municipal  improvement  generally.  The 
National  Municipal  League  has  had  a  committee  on 
Municipal  Reference  Libraries  for  a  number  of  years  and 
university  faculties  of  political  science  are  more  and  more 
becoming  sponsors  for  such  agencies. 

The  part  of  the  text  dealing  with  law  libraries  aims  to 
give  to  the  law  student  some  knowledge  of  the  use  of  his 
tools  which  is  now  given  in  law  schools,  if  at  all,  at  various 


Preface  ix 

unrelated  points  in  a  curriculum  naturally  emphasiz- 
ing facts  of  law  rather  than  sources  of  law,  and  to  give 
to  the  law  student  who  prefers  the  literary  side  of  his 
profession  an  elementary  knowledge  of  law  library 
methods.  To  the  library  school  student  it  aims  to  give 
a  general  notion  of  the  materials  with  which  he  must  be 
familiar  if  he  plans  to  enter  law  library  work.  It  is 
hoped  the  law  librarian  will  find  in  it  a  convenient  cumu- 
lation of  certain  heretofore  scattered  information  par- 
ticularly of  a  bibliographical  nature  or  of  use  in  certain 
of  the  strictly  technical  library  details  of  his  work. 

The  sections  on  legislative  and  municipal  reference 
work  record  the  history  and  development  of  two  very 
practical  and  useful  phases  of  modern  library  activity. 
The  materials  and  methods  employed  in  these  two 
receive  fuller  treatment  than  those  same  topics  receive 
in  the  first  section.  Graduates  from  universities  who 
have  emphasized  political  science  in  their  study  are 
more  and  more  being  attracted  into  these  two  types  of 
libraries  as  investigators.  They  admit  being  hampered 
by  a  lack  of  knowledge  of  library  technique  and  biblio- 
graphical methods.  Library  school  graduates  are  becom- 
ing more  and  more  in  demand  as  cataloguers,  reference 
workers,  and  directors  of  such  libraries.  In  most  cases 
their  professional  training  has  not  emphasized  the  stand- 
ard literature  nor  the  sources  of  current  information 
relating  to  the  work  to  which  they  are  called.  Legis- 
lators themselves  are  demanding  information  before 
they  act  and  public  opinion  is  seeking  education.  The 
text  is  planned  to  supply  some  want  of  each  and  to  be  a 
bibliographical  guide  to  those  already  actively  engaged  in 
legislative  and  municipal  reference  libraries  and  research 
bureaus. 


X  Preface 

Special  attention  may  perhaps  be  called  to  certain 
matter  offered  in  the  appendix.  The  problems  suggested 
for  use  in  the  classroom  were  given  to  the  Seniors  at  the 
University  of  Illinois  Library  School  and  were  creditably 
handled.  They  may  prove  suitable  to  test  the  ability 
of  students  of  political  science  and  law  to  handle  the 
same  questions  with  which  workers  in  law,  legislative, 
and  municipal  reference  libraries  expect  to  be  con- 
fronted. 

The  texts  of  laws  relating  to  legislative  reference 
bureaus  and  other  bill-drafting  agencies  should  prove  of 
definite  value  to  legislators  contemplating  the  creation  of 
such  bureaus  or  agencies  elsewhere,  or  the  revising  of 
existing  laws  on  these  subjects.  The  bibliographies 
enable  anyone  to  go  deeper  into  the  subjects  to  which 
they  relate  than  can  the  present  text  and  note  many 
articles  which  afford  the  means  of  convincing  any  not 
already  convinced  of  the  common  sense  of  the  legislative 
reference  movement.  It  may  be  said  that  the  municipal 
reference  laws,  ordinances,  and  bibliographies  in  the  third 
section  of  the  appendix  should  answer  the  same  pur- 
pose in  regard  to  municipal  reference  work. 

The  book  is  based  on  lectures  on  these  three  subjects 
gi\en  before  the  Senior  Class  of  the  University  of  Illi- 
nois Library  School,  one  of  the  two  library  schools  that 
ha\e  made  the  college  degree  an  entrance  requirement. 
In  the  revision  and  re-writing  of  them  the  text  has  been 
substantially  enlarged,  though  it  is  quite  obvious  that 
no  topic  has  received  exhaustive  treatment.  Footnotes 
have  been  added  for  the  convenience  of  those  who  may 
care  to  go  further  in  various  directions. 

To  the  usual  difficulties  encountered  in  all  biblio- 
graphical work  and  text-book  writing  were  added  certain 


Preface  xi 

others  due  specially  to  the  character  of  the  work. 
The  last  two  sections  of  the  book  relate  not  only  to  sub- 
jects still  in  the  formative  period  so  that  neither  functions 
nor  methods  are  yet  crystalized,  but  they  relate  to  sub- 
jects so  extensive  in  scope  —  and  what  field  may  present- 
day  legislation  not  enter?  —  that  obviously  the  text 
can  touch  upon  only  a  small  portion  of  the  topics  legiti- 
mately within  the  field  of  present  discussion.  The 
subject-matter  of  the  first  section  is  undergoing  a  transi- 
tion; such  matters  as  cataloguing,  classification,  and 
subject  headings  in  law  library  work  have  not  received 
the  same  consideration  accorded  these  same  subjects  in 
other  fields  of  library  endeavor. 

In  the  arrangement  of  topics  a  number  of  arbitrary 
decisions  were  necessary,  the  most  important  relating  to 
the  classification  of  materials  for  discussion.  A  group- 
ing by  form  was  decided  upon  as  against  a  grouping  by 
subject-matter,  an  arrangement  seeming  to  offer  less 
objection  than  the  latter.  Lists  of  illustrative  titles  are 
necessarily  limited,  therefore  all  the  more  open  to  criti- 
cism. Numbers  of  "just  as  good"  illustrations  may 
exist,  but  it  is  believed  that  those  cited  are  all  worth 
the  space  allotted  them. 

It  is  part  of  the  pleasant  duty  of  an  author  gratefully 
to  acknowledge  the  assistance  rendered  him  by  the  con- 
tributions to  his  work  of  time,  labor,  thought,  and 
scholarship  on  the  part  of  generous  friends  and  friendly 
critics.  The  writer  is  specially  indebted  to  Mr.  James 
IngersoU  Wyer,  Director  of  the  New  York  State  Library 
and  Library  School,  and  to  Professors  John  A.  Fairlie 
and  Walter  F.  Dodd,  of  the  Political  Science  Faculty  of 
the  University  of  Illinois,  for  much  patient  criticism  and 
many   suggestions   relating   to   both    arrangement   and 


xii  Preface 

treat ment  of  the  text  and  for  a  reading  by  each  of  much 
of  the  entire  manuscript.  For  assistance  in  reading 
proof  cordial  thanks  is  extended  to  Mrs.  Eleanor  G. 
Karsten,  secretary  to  the  librarian  of  the  Universit>'  of 
Illinois.  To  the  several  contributors  of  data  in  the 
appendix  in  particular,  Miss  Grace  Sherwood  of  the 
Rhode  Island  State  Library's  Legislative  Reference 
Department,  Miss  Irma  A.  Watts  of  the  Pennsylvania 
Legislative  Reference  Bureau,  Professor  Chester  Lloyd 
Jones  of  the  University  of  Wisconsin,  and  James 
McKirdy  of  the  Pennsylvania  Legislative  Reference 
Bureau,  special  thanks  are  due  for  their  courteous 
and  valued  co-operation  or  permission  to  use  certain 
•materials.  To  the  members  of  the  staff  of  the  Library 
of  Congress,  the  New  York  Public  Library,  the  Wiscon- 
sin Legislative  Reference  Department,  and  many  other 
institutions,  and  to  the  many  who  must  go  unnamed 
but  who  by  correspondence  and  suggestion  have  added 
much  to  whatever  of  value  there  is  here  offered,  grate- 
ful acknowledgment  is  returned. 

John  Boynton  Kaiser. 
May  1,  1914. 


CHAPTER   I. 
LAW   LIBR.\RIES. 

Topical  Outline. 


1.     General. 


(a)  Xeed. 

Law  books  a  lawyer's  tools. 

(b)  Types  of  Law  Libraries. 

1.  State. 

2.  Court. 

3.  Government  Department. 

4.  Association. 

5.  School. 

6.  Privately  owned. 

(c)  Types  of  Problems. 

2.     Kinds  of  Material:  General. 

Statutor\-  and  non-statutory-  law;   written  and  unwrit- 
ten law;  common  law,  case-law,  court-made  law;  equity. 

(a)     Court  Reports  and  Aids. 

I.     Court  Decisions. 

1.  Official  Regular  Series. 

2.  Unofficial  Reports  b\-  Private  Individuals, 

e.g.,  The  Xational  Reporter  System. 

3.  Selected   Decisions:     Important   Cases  on 

Miscellaneous  Subjects,  e.g., 
(a)     Lawyers    Reports  Annotated  (L.R.A.). 


Law,  Legislative  Reference  and 

(b)  The   "Trinity":    American  Decisions 

(100  vols.),  American  Reports  (60 
vols.),  American  Stale  Reports  (140 
vols,  to  Nov.  1913.) 

(c)  American  and  English  Annotated  Cases. 

(d)  English  Revised  Reports. 

4.  Selected  Cases  on  a  Particular  Subject,  e.g., 

(a)  American  Bankruptcy  Reports. 

(b)  American  Corporation  Cases. 

(c)  American  Xegligence  Reports. 

(d)  American  and  English  Railroad  Cases, 

New  Series. 

5.  Certain    Law    Periodicals    are    practically 

advance  sheets  of  Reports  for  a  locality, 
e.g.,  N.  Y.  Law  Journal  (Daily). 

6.  Quasi-judicial  Decisions  and  Opinions. 

A.     Federal. 

(a)  Interstate   Commerce  Commission 

Decisions. 

(b)  Commissioner  of  Patents  Decisions. 

(c)  Decisions    of    the    Department    of 

the  Interior  and  General  Land 
Office  in  Cases  Relating  to  Public 
Lands. 

(d)  Comptroller     of      the      Treasury: 

Treasury  Decisiotis. 

(e)  Comptroller  of  the  Currency. 

(f)  Attorney  General's  Opinions. 

(g)  Judge- Advocate    General    of     the 

Army. 

B.     State. 

e.g.,  New  York  Department  Reports. 


Municipal  Reference  Libraries  3 

II.  Aids  to  Court  Reports. 

1.  Digests. 

2.  Tables  of  Cases. 

3.  Citation  Books. 

e.g.,  SheparcTs  Citations. 

Taylor's  Citations  (N.  Y.) 

III.  Briefs  of  Counsel. 

IV.  Trials. 

(b)    Constitutions.Treaties,  and  Statute  Law. 
L     Constitutional  Convention  Proceedings. 

2.  Annotated  Constitutions. 

3.  Treaties  (All  are  Federal). 

4.  Statutes: 

(a)  Congressional  Acts; 

Slip   laws,  session    laws,  statutes  at    large, 
compiled  statutes,  revised  statutes,  codes. 

(b)  State  Laws. 

Slip  laws,  session  laws,  compilations,  revi- 
sions, codes. 

(c)  Text  Books. 
\.     General. 
2.     Local. 

(d)  Encyclopedias  and  Dictionaries. 

1.  Encyclopedias. 

e.g.,  American  and  English  Encyclopedia  of 
Law. 

2.  Dictionaries, 

e.g.,  Words  and  Phrases,  Bouvier's. 
(Note:  Court  definitions  are  valuable.) 


Law,  Legislative  Reference  and 

(e)  Periodicals,  Society  Proceedings. 
L     Regular  Legal  Periodicals. 

e.g.,  Harvard  Law  Review,  Columbia  Law 
Review,  Green  Bag,  Central  Law 
Journal,  etc. 

2.  Bar  Associations'  Proceedings. 

e.g.,  National,  State,  County,  City. 

3.  Indexes  to  Legal  Periodical  Literature. 

(a)  Jones,  L.  A.:  Index  to  Legal  Periodi- 
cal Literature;  v.  1  to  1887,  v.  2,  1887- 
1899,  V.  3,  1900-1909. 

(b)  Index  to  Legal  Periodicals  and  Law 
Library  Journal,  \.  1-  ,  1908-  ,  pub- 
lished quarterly,  cumulates  annually. 

(f)  Government  Documents. 

(National,  State,  Local.) 
I.     National. 

1.  Official  Court  Reports:  Series. 

2.  Decisions   and  Opinions  of  Administrative 

Officers:  Series. 

3.  Reprints  of  Single  Decisions  and  Collected 

Decisions  not  in  Series. 

4.  Laws,  Journals,  Bills. 

5.  Miscellaneous  Compilations. 

e.g.,  Thorpe's  Constitutions,  Moore's 
Digest,  Malloy's  and  Charles'  Treaties, 
Anti-Trust  Decisions. 

II.     State. 

Court     Reports,    Administrative     Decisions, 
Laws,  and  Journals. 

III.     Municipal. 

Charters,  Ordinances,  Council  Proceedings. 


Municipal  Reference  Libraries  5 

(g)     Legal  Miscellany. 

American  Association  of  Law  Libraries  Pro- 
ceedings, Legal  Biography,  Legal  Bibliog- 
raphy, Legal  Directories,  etc. 
L     Legal  Bibliography. 

(a)  General. 

(b)  Law  Library  Catalogues. 

(c)  Dealers'    and  Publishers'   Catalogues. 

(d)  American  Statute  Law. 

(e)  Canadian  and  Latin-American  Law. 
2.     Directories. 

3.     Handling  of  MateriaL 

(a)  Acquisition. 

1.  Purchase. 

Dealers'  and  Publishers'  Trade  Cata- 
logues, Bibliographies,  and  Law  Library 
Catalogues. 

2.  Exchange. 

(a)     State  Reports. 

3.  Gift. 

(a)     Government  Documents. 

(b)  Classification.  ^     .     •    ^-c 

There  is  no  generally  accepted  standard,  scientific 
classification  of  legal  literature.  {Cf.  Dewey,  Cutter, 
Library  of  Congress,  etc.) 

Law  books  fall  into  pretty  well  defined  classes  and  no 
detailed  classification  system  with  involved  notation  is 
generally  deemed  necessary. 

Shelf  marks  are  useful  on  material  which  does  not 
readily  fall  into  a  well  defined  group. 
Exceptions: 

Some  believe  in  classifying  the  law  library  including 
text  books,  e.  g..  Dr.  Wire,  of  the  Worcester  County 
Law  Library,  Worcester,  Mass. 

The  N.  V.  State  Law  Library  Classification. 


Law,  Legislative  Reference  and 

(c)  Cataloguing. 

A  dictionary  catalogue  following  in  general  the  regu- 
lar rules  of  cataloguing. 

Cataloguing  of  legal  literature  a  special  field  and 
should    have   special   study.     (C/.  A.  L.    A.    Catalog 

Rules.) 

(d)  Shelf-arrangement. 

For  United  States  material  prefer  the  state  as  unit 
with  reports,  statutes,  local  texts,  etc.,  grouped  by 
states;  or 

L     L     Court  Reports:  State. 

(a)  Arrange  alphabetically  by  states, 

then   chronologically   (numeri- 
cally) ;  or, 

(b)  Arrange  alphabetically  by    cus- 

tomary way    of  citing    them, 
i.e.,  by  names  of  reporters. 
IL     Court  Reports. 

(a)  English. 

(b)  Federal. 

(c)  Special  Series. 

2.  Briefs  of  Counsel. 

3.  Trials. 

4.  Statute  Law: 

Alphabetically  by  state,  then  chronologic- 
ally. 

5.  Text-Books: 

(a)  Alphabetically  by  authors;    or 

(b)  Alphabetically  by  subjects,    then    by 

authors. 

6.  Periodicals. 

Usually  alphabetically  by  title. 

7.  Bar  Associations'  Reports. 

Alphabetically  by  locality. 

8.  Legal  Miscellany. 

Special  methods. 


Municipal  Reference  Libraries  7 

(e)  Loans. 

(f)  Method  of  Citing  Law  Books  and  Legal 

Abbreviations. 

4.    Legal  Works  in  a  General  Library. 

(a)  Nature  of  the  Usual  Inquiry. 

(b)  Types  of  Books  and  Periodicals  Needed. 


LAW  LIBRARIES. 

1.    General. 

(a)  The  Need. 
A  prominent  attorney  in  the  state  of  New  York, 
counsel  for  one  of  the  largest  branches  of  the  state  gov- 
ernment, has  furnished  adequate  and  expert  testimony 
in  regard  to  the  need  for  law  libraries.  He  says:  "There 
is  no  class  of  men,  professional  or  otherwise,  so  dependent 
upon  books  as  the  lawyers.  There  is  no  library  of  what- 
soever kind  or  nature  which  so  directly  pertains  to  the 
interests  which  it  is  designed  to  serve,  as  the  law 
library."^  And,  lawyer-like,  Mr.  Gilbert  is  not  speak- 
ing without  good  authority,  for  the  courts  -  have  decided 
that  a  lawyer's  books  are  his  necessary  tools  and  may 
not  be  taken  from  him  and  sold  by  an  order  of  the  court 
issued  to  enforce  the  payment  of  a  judgment  against 
him  as  a  debtor. 

1  Frank  B.  Gilbert,  "The  Law  Library,"  in  American  Library 
Association  Papers  and  Proceedings,  1907,  p   92. 

^  Fowler  x.Gilmore,  30  Tex.  432;  Lambeth  v.  Milton,  2  Robinson 
(La.)  81;  Brown  v.  Hoffmeister,  71  Mo.  411;  Equitable  Life  Insur- 
ance Soc.  of  United  States  v.Coode,  101  la.  160. 


8  Law,  Legislative  Reference  and 

(b)     Types  of  Law  Libraries.' 

Aside  from  the  private  library  for  private  use  there 
are  six  principal  types  of  law  libraries,  namely:  (1) 
State,  (2)  Court,  (3)  Government  Department,  (4) 
Association,  (5)  School,  and  (6)  Privately  owned  but 
for  public  use. 

(L)  The  state  law  library  may  be  a  distinct  organi- 
zation, as  the  "West  Virginia  State  Law  Library,"  or 
a  section  of  the  state  library,  as  in  New  York  State.  And, 
by  broadening  the  sense  in  which  the  term  state  is  used, 
there  may  be  put  into  this  classification  the  provincial 
law  libraries  of  Canada  and  elsewhere,  and  the  national 
law  libraries  or  law  divisions  of  national  libraries,  such  as 
the  Law  Division  of  the  Library  of  Congress. 

(2.)  A  court  library  may  serve  as  a  state  law  library 
as  is  the  case,  for  example,  in  Texas  and  Ohio,  where 
there  are  the  supreme  court  libraries  officially  under  the 
jurisdiction  of  the  supreme  court,  whose  marshal  is 
actively  in  charge  of  the  library's  affairs  but  which  are 
open  to  the  public  and  cater  to  the  needs  of  all  the  bar 
as  well  as  the  supreme  bench. 

In  some  instances  court  libraries  are  restricted  to  the 
use  of  the  judges  of  a  particular  court,  in  which  case  they 
are  located  in  study  or  consultation  rooms. 

(3.)  Government  department  law  libraries  are  rapidly 
taking  a  place  of  increasing  prominence  and  may  be 
found  in  national,  state,  and  city  offices.  The  leader 
of  this  type  is  the  library  of  the  Department  of  Justice 
at   Washington.     Among   the    states,    department    law 

'  For  a  "List  of  Law  Libraries  in  the  United  States  and  Canada," 
see  Law  Library  Journal  5:  35-51,  July-Oct.  1912.  This  gives  the 
location,  name,  librarian,  and  number  of  volumes  of  law  libraries 
and  law  departments  of  general  libraries  when  the  law  collection  is 
large. 


Municipal  Reference  Libraries  9 

libraries  are  found  in  the  offices  of  the  attorney  general, 
the  secretary  of  state,  and  the  counsel  for  other  state 
departments  such  as  the  executive  office  or  the  state 
education  department.  In  cities,  the  office  of  the  city 
solicitor  or  corporation  counsel  will  frequently  have  a 
library  of  no  mean  proportions. 

(4.)  By  the  fourth  or  association  type  are  meant 
libraries  maintained  by  the  membership  of  local  bar 
associations,  city,  county,  etc.  There  are  many 
examples  of  this  type  of  law  library  supported  largely, 
if  not  entirely,  from  the  annual  dues  and  initiation  fees 
of  the  members  of  the  associations  who  alone  are  privileged 
to  use  the  library.  In  some  cases  part  of  the  expense 
of  administration  is  borne  by  the  local  courts,  and,  as  a 
rule,  anyone  having  occasion  to  use  the  library  may 
secure  the  privilege  by  becoming  a  member  of  the  bar 
association  or  local  law  library  association  which  main- 
tains it.  The  leading  example  of  this  type  is  the 
library  of  the  Association  of  ihe  Bar  of  New  York  City. 

(5.)  School  libraries  may  be  in  independent  law 
schools,  or  in  the  law  departments  of  colleges  and  uni- 
versities. In  the  latter  case  they  may  be  under  distinct 
management  or  may  be  a  part  of  the  college  or  univer- 
sity's library  system,  centrally  administered.^ 

(6.)  Privately  owned  libraries  exist  which  are  public 
to  the  extent  of  permitting  others  to  use  them  on  the 
payment  of  a  fixed  charge.  The  owner  may  be  an  indi- 
vidual or  a  firm  and  the  purpose  may  be  to  afford  better 
facilities  than  the  local  law  library,  or,  the  undertaking 
may  be  a  commercial  undertaking  purely. 


*  Cf.  J.  H.  Arnold,  "Growth  of  the  Harvard  Law  Library"  (L.  L. 
J.  5:  17-25,  July-Oct.  1912). 


10  Law,  Legislative  Reference  and 

(c)    Types  of  Problems. 

The  law  library  presents  two  classes  of  problems:  (1) 
those  which  are  common  to  practically  all  types  of  libra- 
ries; (2)  those  which  arise  from  the  fact  that  the  publi- 
cations contained  in  a  law  library  differ  both  in  form  and 
subject-matter  from  those  in  a  general  library,  thus 
giving  rise  to  variations  from  the  normal  procedure 
usually  followed  in  handling  other  library  material. 
That  is,  the  special  problems  are  caused  by  the  special 
kind  of  material  dealt  with.  These  problems  are 
discussed  in  the  pages  devoted  to  the  "Handling  of 
Material,"  the  third  division  of  the  Law  Libraries 
discussion. 

The  problem  of  reference  or  research  work  in  the  law 
library  is  less  troublesome  than  might  be  supposed,  for 
sucii  work  is  usually  done  by  the  patron  himself  and  will 
not  be  treated  at  length  in  the  present  instance.  The 
later  discussions  of  the  kinds  of  material  found  in  the 
law  library  are  intended  to  indicate  in  general  to  what 
use  the  materials  can  be  put.  Beyond  this  a  single  specific 
example  of  special  law  reference  work  must  suffice  as  an 
illustration,  and  it  is  perhaps  unnecessary  to  add,  that 
if  attempted  on  anything  more  than  a  small  scale,  such 
work  should  be  done  only  by  one  thoroughly  at  home 
in  the  literature  of  the  law. 

The  lawyer  of  today  has  been  called  a  "case  lawyer," 
and,  more  often  than  not,  his  object  in  coming  to  the  law 
library  is  to  find  a  case  decided  by  a  court  of  last  resort 
which  presented  a  set  of  facts  similar  to  those  his  client 
has  brought  him.  When  such  a  case  is  found,  and  the  law 
there  applied  was  similar  to  the  law  that  must  be  applied 
in  his  case,  the  lawyer  has  found  an  authority  and  a 
precedent  which  he  will  use  in  arguing  his  own  case.  To 
find  precedents  is,  therefore,  one  problem. 


Municipal  Reference  Libraries  11 

But  to  find  suitable  precedents  requires  a  thorough 
knowledge  of  the  numerous  guides  or  aids  which  make 
possible  a  rapid  survey  of  the  17,000  or  more  volumes 
of  case-law  now  available  in  the  English  language  alone. 

These  guides,  or  aids,  consist  of  digests,  indexes,  tables 
of  cases,  citation  books,  text  books,  etc.,  and  greatly 
facilitate  the  labor,  not  only  of  finding  where  a  particular 
case  or  a  series  of  cases  on  a  particular  subject  may  have 
been  published,  but  also  to  what  extent  it  has  been 
approved  or  disapproved  by  text-writers  or  other  courts. 

2.     Kinds  of  Material. 

Law  in  its  technical  sense  may  be  divided  into  statutory 
law  and  non-statutory  law,  or,  as  is  sometimes  done,  into 
written  law  and  unwritten  law.  Statute  law  signifies 
the  positive  enactments  of  law-making  bodies,  such  as 
parliaments,  congresses,  and  legislatures,  and  is  termed 
written  law  because  the  idea  in  the  law  has  been  ex- 
pressed in  definite,  positive  language.  Non-statutory 
law  is  law  that  has  not  been  enacted  by  any  law-making 
body.  The  term  unwritten  law  in  the  present  case  is 
really  a  misnomer  and  a  fiction.  It  simply  indicates  the 
fact  that  this  non-statutory  law  is  made  up  largely  of 
ancient  customs  of  unrecorded  origin  which  have  received 
judicial  sanction  and  affirmance  and  have  been  made 
formal  law  by  the  decisions  of  courts  of  justice.  The 
decisions  themselves  are  now  written  and  the  term  un- 
written is  still  applicable  only  in  the  sense  that  the  mental 
concept  of  the  rule  of  law  has  never  been  put  into  words 
and  expressed  in  positive  and  defi-nite  language  by  a 
legislative  body. 

The  unwritten  law  of  English  speaking  countries,  as 
opposed  to  statute  or  written  law,  is  often  termed  "Com- 


12  Law,  Legislative  Reference  and 

mon  Law,"  and  the  division  is  made,  therefore,  into 
Common  Law  and  Statute  La•v\^^  Using  the  phrase 
common  law  in  a  broad  sense,  this  grouping  is  proper, 
but  it  should  be  observed  that  restricting  the  term  com- 
mon law  to  its  narrow-er  and  perhaps  more  technical 
meaning,  unwritten  law  must  be  said  to  be  made  up  of 
both  common  law  and  equity. 

The  most  important  sources  of  common  law  are  the 
ancient  customs  and  usages  of  England  adopted  in  assert- 
ing legal  rights  and  in  the  prohibiting  and  punishment  of 
legal  wrongs  which  have  been  transmuted  into  actual 
law  by  having  been  recognized,  accepted,  and  applied 
as  such  by  courts  of  justice  in  rendering  decisions.  This 
is  sometimes  termed  case-law  or  court-made  law. 

Equity  as  a  branch  of  jurisprudence,  which  developed 
contemporaneously  with  common  law,  may  be  defined 
as  that  branch  which  seeks  to  protect  existing  rights  by 
keeping  them  intact  or  by  preventing  foreseen  injury 
to  them,  rather  than  inflicting  punishment  for  their 
infringement  and  awarding  compensation  for  damage 
and  wrong  done.® 

'For  further  explanation  of  the  terms  Common  Law  and  Statute 
Law,  Written  Law  and  Unwritten  Law,  sec  W.  C.  Robinson,  Ele- 
mentary Law  (Bost.  1910)  sees.  5,  7-11;  \V.  D.  Clark,  Elementary 
Law,  sees.  27-39  (X.  Y.  1909);  Sir  Courtenay  Ilbert,  Legislative 
Methods  and  Forms  (Oxford,  1901),  p.  1-19;  \V.  M.  GvAAiiTt,  Elements 
of  English  Law  (N.  Y.  1912?)  p.  7-32,  and  Sir  Frederick  Pollock, 
The  Genius  of  the  Common  Law,  N.  Y.  Col.  Univ.  Pr.  141  p.,  1912. 

'In  its  origin  equity  was  in  theory  an  appeal  from  common  law 
procedure  and  precedents  to  the  "conscience  and  equity  of  the  king 
himself  speaking  by  the  mouth  of  his  chancellor."  For  example, 
the  right  of  injunction  was  one  of  the  first  principles  recognized  by 
equity  for  b>-  it  wrongdoing  could  be  legally  prevented,  not  merely 
prohibited  or  compensated.  Similarly  it  was  applied  to  cases  involv- 
ing the  correction  of  mistakes  and  accidents,  the  discovery  of  fraud, 
enforcing  the  specific  performance  of  contract,  and  so  on. 

Common  law  courts  did  not  concern  themselves  with  such  matters 
and  they  were  left  to  a  separate  court,  called  the  High  Court  of  Chan- 


Municipal  Reference  Libraries  13 

(a)     Court  Reports  and  Aids. 

I.     Court  Decisions. 

People  disagree.  They  take  their  disagreements  to 
court  to  have  them  settled  according  to  law.  Courts 
determine  what  the  law  is,  strictly  speaking,  they  do 
not  make  law.  Court  decisions  have  to  d»with  statute 
law,  common  law,  and  equity.  They  may  interpret, 
construe,  or  determine  the  validity  of  statutes.  Courts 
may  promulgate  judicial  decrees  declaring  that  to  be 
law  which  theretofore  had  become  merely  an  established 
custom.  In  -some  cases  their  main  duty  is  to  apply 
acknowledged  law  and  settle  disputes.  When  there 
exists  no  statute  controlling  the  question  under  considera- 
tion then  the  common  law  is  invoked  and  former  decisions 
of  courts  arising  under  an  identical  or  analogous  state 
of  facts  are  looked  to  as  judicial  guides  or  aids,  or  the 
principles  of  equity  are  applied.     A  decision  in  the  former 

eery,  which  thus  supplemented  the  work  of  the  so-called  comrnon 
law  courts.  In  more  recent  times,  however,  the  anomaly  of  having 
two  systems  of  courts  administering  distinct  branches  of  juris- 
prudence has  been  largely  done  away  with  by  granting  to  one  sys- 
tem both  common  law  and  equity  jurisdiction.  This  change  took 
place  in  England  as  a  result  of  the  Judicature  Acts  of  1873  and  1875 
(36  and  37  Vict.  c.  66)  which  remodeled  the  entire  English  court 
system. 

In  the  United  States  the  Federal  courts  and  some  of  the  state 
courts  have  had  from  the  beginning  both  common  law  and  equity 
jurisdiction.  The  states  have  administered  equity  in  three  different 
ways.  In  some  there  are  separate  courts  of  chancery  for  this  pur- 
pose; in  others  the  same  court  may  sit  as  a  court  of  equity  on  one 
case  and  as  a  common  law  court  on  another;  where  there  is  "code 
procedure"  the  same  court  may  apply  the  rules  of  both  law  and 
equity  in  the  same  case. 

For  further  discussions  of  equity,  see  W.  L.  Clark,  Elementary 
Law  (N.  Y.  1909),  p.  39-44;  W.  G.  Miller,  The  Data  of  Juris- 
prudence (Edin.  &  Lond.,  1903),  p.  381-386;  A.  T.  Carter,  A 
Historv  of  English  Legal  Instittitions  (Ed.  4,  Lond.,  1910),  p.  158- 
169,  185-191;  J.  W.  Salmond,  Jurisprudence  (Ed.  2,  Lond.  1907), 
p.  34-38;  also  G.  T.  Bispham,  Principles  of  Equity  (Ed.  8,  1909) 
ard  F.  VV.  Ma.\\\dind,  Equity  (Cambridge,  1909). 


14  Law,  Legislative  Reference  and 

case  becomes  one  of  the  body  of  decisions  which  make 
up  the  common  law  itself. 

The  decisions  of  courts  of  last  resort,  that  is  of  courts 
of  final  and  supreme  authority  in  a  given  jurisdiction, 
as  well  as  the  decisions  of  certain  inferior  courts  are 
published  in  various  series^ 

L  In  the  United  States  there  is  an  official  regular 
series  of  reports  for  the  supreme  or  highest  court  in  each 
state  and  for  many  of  the  federal  courts.  These  federal 
courts  include  the  United  States  Supreme  Court,  the 
the  United  States  Circuit  Courts  of  Appeals,  United 
States  Circuit  Courts,^  United  States  District  Courts, 

^  For  a  full  discussion  of  the  reports  of  the  various  Federal  and 
State  courts  of  the  United  States,  see  Brief  Making  and  the  Use  of 
Law  Books,  second  edition,  edited  bv  Roger  W.  Cooley,  p.  21-59. 
(West  Pub.  Co.,  St.  Paul,  Minn.,  1909.)  The  reports  of  English 
courts  are  discussed  and  listed  in  the  same  volume,  p.  59-79. 

An  older  authority  covering  much  the  same  ground,  but  including 
with  the  Americanand  English  the  Irish,  Scotch,  and  British  Colonial 
reports,  is  C.  C.  Soule's  Lawyers'  Reference  Manual,  1883,  p.  1-162. 

Publishers'  catalogues  sometimes  contain  checklists  of  these  re- 
ports. Good  e.xamples  are  T.  H.  Flood's  Catalogue  of  Law  Books, 
Chicago,  1910  (p.  109-165,  including  the  United  States,  Federal 
and  State,  English,  Irish,  Scotch,  British  Colonial,  and  Canadian), 
and  the  Lawyers'  Co-operative  Publishing  Company's  Where  to 
Look  for  the  Law,  ed.  10,  Rochester,  1911  (p.  179-209,  American 
only). 

A  more  extended  historical  sketch  of  law  reports  and  law  reportmg 
will  be  found  in  J.  W.  Wallace's  The  Reporters,  published  at  Phila- 
delphia in  1855  and  in  Sir  Frederick  Pollock's  A  First  Book  of  Juris- 
prudence (Ed.  2.  Lond.  1904),  p.  286-312. 

For  a  survey  of  English  courts,  their  history  ami  jurisdiction,  see 
A.  T.  Carter,  A  History  of  English  Legal  Institutions,  Ed.  4,  Lond. 
1910,  chapters  VI-XIX;  or,  a  shorter  account  in  W.  L.  Clare, 
Elementary  Law,  N.  Y.  1909,  p.  313-319.  The  latter  includes  the 
courts  of  the  United  States. 

For  a  special  study  of  the  courts  of  an  American  state,  see  Henry 
W.  Scott,  The  Courts  of  the  State  of  New  York,  tlieir  History,  Develop- 
ment, and  Jurisdiction,  .  .  .  506  p.,  X.  Y.,  Wilson  Pub.  Co.,  1909. 

»  These  were  abolished  Jan.  1,  1912;  see  Public  Laws  of  the  U.  S. 
1910-1911,  chap.  231,  p.  1167. 


Municipal  Reference  Libraries  15 

the  Court  of  Claims,^  Court  of  Customs  Appeals,  Com- 
merce Court,i°  and  the  Court  of  Private  Land  Claims 
from  1891  to  1895.  For  a  discussion  of  the  decisions  of 
other  government  officials  rendering  decisions  of  a  semi- 
judicial  nature  see  section  6,  below. 

The  majority  of  these  volumes  of  reported  court  decis- 
ions, or  "court  reports,"  as  they  are  generally  styled, 
are  referred  to  by  the  name  of  the  reporter  preparing 
them.  In  the  United  States  the  courts  have  an  official 
reporter  who  prepares  the  court's  decisions  for  publica- 
tion. It  was  formerly  the  custom  to  name  the  report 
after  him,  as,  for  example,  Dallas'  Reports,  CrancJis 
Reports,  for  the  volumes  of  the  United  States  Supreme 
Court  Reports  for  1790-1800  and  1801-1815,  respectively. 
At  present,  however,  in  almost  all  series  of  federal  and 
state  reports  the  volumes  are  consecutively  numbered 
and  are  cited  by  the  volume  number  and  name  of  the 
state  as,  17  Illinois,  or,  for  federal  reports,  220  U.  S. 
The  origin  of  the  custom  of  citing  reports  by  individual 
names  is  found  in  the  fact  that  in  England  court  reports 
have  always  been  privately  published  by  individuals. 
"Official"  court  reporters  have  not  been  named  though 
some  published  reports  have  been  "authorized"  by  the 
courts.     The  same  is  true  of  some  of  the  early  American 

'  A  sovereign  state  cannot  be  sued  without  its  own  consent. 
Certain  claims,  however,  among  them  those  arising  out  of  alleged 
breaches  of  contract,  are  allowed  a  hearing  in  the  Court  of  Claims 
whose  decisions  are  mandatory  on  the  disbursing  ofiEicer  of  the 
Treasury  and  merely  advisory  on  matters  specially  referred  to  it  by 
Congress.     In  some  of  the  states  there  are  similar  state  courts. 

For  the  further  functions  of  a  Court  of  Claims,  see  F.  J.  Goodnow, 
Principles  of  the  Administrative  Law  of  the  United  States,  N.  \  . 
1905,  p.  387-390. 

10  Mar.  4,  1913,  appropriations  ended,  and  the  court  went  out  of 
existence  some  months  later  when  Congress  refused  to  allow  the 
deficiency  appropriation  asked. 


16  Law,  Legislative  Reference  and 

reports  where  the  publication  was  "authorized"  but  the 
work  done  by  a  private  individual  before  the  days  of 
ofificial  court  reporters. 

Since  1865  the  main  series  of  English  court  reports 
have  been  prepared  and  issued  by  the  Council  of  Law 
Reporting. 

Brief -making,  Pollock's  First  Book,  and  Wallace's  The 
Reporters,  already  mentioned,  give  interesting  accounts 
of  the  English  method  of  court  reporting.  Further 
details  of  the  modern  English  system,  by  the  Council 
of  Law  Reporting,  will  be  found  in  "English  Law  Report- 
ing," an  address  by  Sir  Frederick  Pollock  made  before 
the  American  Bar  Association  in  1903,  and  published 
in  its  proceedings  for  that  year  as  well  as  in  the  Law 
Quarterly  Review}^ 

The  question  of  abbreviations  used  in  citing  reports 
and  of  their  use  elsewhere  in  legal  writing  will  be  referred 
to  again. ^2 

2.  Among  non-ofificial  but  important  series  of  reports 
should  be  named  first  the  National  Reporter  System  pub- 
lished by  the  West  Publishing  Company  of  St.  Paul. 
This  series,  established  in  1879,  reports  all  the  decisions 
of  both  federal  and  state  courts  of  last  resort  and  certain 
others,  to  be  mentioned.  The  states  are  grouped  and 
one  "reporter"  covers  several  neighboring  states,  taking 
its  name  from  the  locality  it  represents.  The  National 
Reporter  System  now  consists  of  seven  state  reporters, 
namely,  the  Atlantic,  Northeastern,  Southeastern,  North- 
western, Southwestern,  Pacific,  and  Southern;  the  Supreme 
Court  Reporter  covering  decisions  of  the  United  States 
Supreme  Court  beginning  with  volume  106  of  its  Reports 

"Vol.  XIX,  p.  451,  el  seq. 
"  p.  59-60,  post. 


Municipal  Reference  Libraries  17 

in  1882;  the  Federal  Reporter  reporting  decisions  of  the 
United  States  Circuit  Courts  and  United  States  District 
Courts  since  1880,  all  cases  in  United  States  Circuit 
Courts  of  Appeals,  and,  recently,  the  Commerce  Court's 
decisions;  and  the  New  York  Supplement ior  the  Supreme 
and  lower  courts  of  record  of  New  York  since  1888. 
These  volumes  are  all  issued  in  advance  sheets  much 
ahead  of  the  official  reports  and  later,  revised  and  cor- 
rected, in  bound  volumes. 

Another  important  nonofficial  series  is  the  Lawyers' 
Edition  of  the  United  States  Reports  published  by  the 
Lawyers'  Co-operative  Publishing  Company,  Rochester, 
New  York.  In  this  series  several  regular  volumes  make 
one  "book"  of  the  series.  Advance  sheets  are  issued 
before  the  final  volumes. 

English  Reports,  Full  Reprint  is  the  title  of  a  series 
begun  in  1900  which  proposes  to  reprint  all  English 
cases  from  1307  to  1865  in  153  volumes.  The  set  now 
numbers  139  volumes.  It  should,  perhaps,  be  repeated 
that  all  the  English  court  reports  are  reported  non- 
ofiticially  and  would  properly  be  discussed  at  this  point 
if  it  were  the  purpose  of  this  little  manual  to  include  a 
full  discussion  of  English  reports.  That,  however,  is 
left  to  the  authorities  cited  earlier  in  the  footnotes. 

3.  Other  series  are  of  selected  decisions  on  miscel- 
laneous subjects.  The  following  may  be  named  as 
prominent  examples: 

(a)  The  Lawyers'  Reports  Annotated,  70  volumes 
1888-1905,  Q.ndLawyers  Reports  Annotated, 
New  Series,  1906  to  date. 

The  cases  selected  involve  new  principles,  the 
new  application  of  old  principles  to  changed  con- 
ditions, or  include  valuable  discussions  of  practically 
useful  points.  Extensive  annotation  often  of  much 
historical  as  well  as  present  value  is  a  feature. 


18  Leiw,  Legislative  Reference  and 

(b)  The    so-called    "Trinit\-"    made   up  of    The 

American  Decisions,  100  volumes,  American 
Reports,  60  volumes,  and  American  State 
Reports,  140  volumes.  The  latter  title 
changed  in  1912  to  American  Annotated 
Cases  and  the  volumes  are  lettered  A,  B,  C, 
etc.,  for  each  \'car.  X'olume  1913D  has 
appeared. 

The  separate  sets  cover  respectively  1760-1869, 
1869-1887,  and  1887  to  1912.  The  cases  selected 
are  from  the  decisions  of  state  courts  and  the 
principle  of  selection  is  that  the  cases  are  of  "para- 
mount importance  and  general  value"  everywhere 
in  the  United  States. 

(c)  The  American  and  English  Annotated  Cases,  a 

series  begun  in  1906,  and  reproducing  only- 
cases  of  importance  and  general  value, 
includes  Canadian  and  now  numbers  19 
volumes. 

(d)  Examples  of  English  series  are  English  Ruling 

Cases  and  the  Revised  Reports,  the  latter 
edited  by  Sir  Frederick  Pollock,  a  series 
begun  in  1891,  and  republishing  cases 
decided  since  1785  which  are  still  of  prac- 
tical value  and  use. 

4.  Another  type  of  selected  decisions  is  that  having 
a  special  field  of  the  law  for  its  subject-matter.  Illus- 
trations of  this  are: 

(a)  American  Bankruptcy  Reports,  1899-. 

(b)  American  Corporation  Cases,  18QS-1887.     lOv. 

(c)  Americafi   Negligence  Reports,  1896-. 

(d)  American  and  English  Railroad  Cases,  New 

Series,  1896-. 

(e)  American  Electrical  Cases,  1872-1903.     8v. 

(f)  Municipal    Corporation      Cases,     1900-1904. 

llv. 


Municipal  Reference  Libraries  19 

Similar  to  this  is  the  single  volume  work  termed  a 
"case-book"  which  is  a  collection  of  leading  cases  on  a 
single  subject  often  planned  for  use  in  law  schools  as  a 
text  book.  Examples  are  McClain's  Cases  on  Constitu- 
tional Laiu,  Thayer's  Cases  on  Constitutional  Law,  and 
Gray's  Cases  on  Property^ 

5.  Certain  law  periodicals  are  practically  advance 
sheets  of  reports  for  a  locality  as  the  daily  New  York 
Law  Journal. 

6.  Quasi-judicial  Decisions  and  Opinions. 

A.     Federal. 

There  are  numerous  government  boards,  commissions, 
and  officers  exercising  judicial  or  semi-judicial  functions 
whose  published  decisions  or  opinions  resemble  court 
reports  and  in  many  cases  are  final  authority  on  the 
legal  questions  involved.  The  subject-matter  of  the 
decisions  is  in  most  instances  indicated  sufficiently  for 
present  purposes  by  the  titles  of  the  series.  For  further 
details  reference  must  be  had  to  the  Congressional  Direc- 
tory, the  federal  law  establishing  the  board,  commission, 
or  office,  and  to  the  series  of  reports  and  opinions 
themselves. 

Examples  of  such  decisions  and  opinions  are: 

(a)  Interstate  Commerce  Commission  Decisions. 

(b)  Commissioner  of  Patents  Decisions. 

(c)  Decisions  of  the  Department  of  the  Interior 

and  General  Land  Office  in  cases  relating 
to  public  lands. 

"The  American  Casebook  Series,  edited  by  James  Brown  Scott 
and  published  by  the  West  Publishing  Company  is  a  standard  series 
of  such  books. 


20  Law,  Legislative  Reference  and 

(d)  Comptroller    of     the    Treasury:      Treasury 

Decisions. 

This  is  an  official  publication  of  the  decisions 
of  the  various  courts,  boards,  and  officers,  including 
the  Court  of  Customs  Appeals"  and  the  Board  of 
United  States  General  Appraisers,  having  juris- 
diction in  cases  arising  under  the  customs  and 
revenue  laws  of  the  country.  '^ 

(e)  Comptroller    of    the    Currency:    Digest    of 

National  Bank  Decisions. 

(f)  Attorney  General :  Opinions. 

(g)  Judge-Advocate  General  of  the  L'.  S.  Army: 

Opinions. 

In  several  instances  digests  of  these  opinions  and 
decisions  have  been  prepared,  notably  in  the  case  of 
the  Attorneys-General  for  which  there  is  a  Digest  of 
Official  Opinions  of  Attorneys-General,  two  volumes, 
covering  in  the  first  Opinions  volumes  1-16  (1789-1881) 
and  in  the  second  vols.  17-25,  (1881-1906)  of  the  Opiwiow^. 
These  were  published  in  1885  and  1908,  respectively. 
Another  recent  example  is  the  Digest  of  Opinions  of 
Judge  Advocates  General  (1862-Jan.  31,  1912)  issued  by 
the  War  Department  in  1912. 

B.     State. 

Among  the  states  certain  administrative  officers 
exercise  similar  functions  and  render  decisions  which 
have  the  effect  of  law  on  the  questions  involved.  This 
authority  is  found  in  the  state  law  creating  the  office  in 
question  and  consequently  is  not  necessarily  common 

"  Recently  (191 1)  the  Court  ot  Customs  Appeals  started  a  separate 
series  of  its  reports. 

'^  See  further  William  E.  Hotchkiss,  The  Judicial  Work  of  the 
Comptroller  of  the  Treasury,  164  p.,  Ithaca,  I'Jll  (Cornell  Studies  in 
History  and  Political  Science,  v.  3). 


Municipal  Reference  Libraries  21 

to  the  same  officials  in  different  states.  Public  service 
or  utility  commissions,  railroad  commissions,  depart- 
ments of  health  and  of  public  instruction,  boards  of 
equalization  and  boards  of  arbitration,  and  various  other 
branches  of  state  governments  are  usually  vested  with 
such  authority  within  certain  limits.  The  decisions  of 
these  authorities  are  usually  published  as  a  part  of  their 
annual  or  biennial  reports,  not  separately,  except  in  the 
case  of  public  service  commissions  whose  decisions,  as  in 
New  York,  may  reach  several  volumes  a  year.  New  York 
is  the  only  state  where  all  such  quasi- judicial  decisions  are 
published  in  a  single  series  and  in  its  New  York  Depart- 
ment Reports,  presenting  both  in  advance  sheets  and 
later  in  a  definitive  edition  the  decisions  of  all  state 
departments  which  have  final  jurisdiction  in  any  direction. 
New  York  is  setting  a  unique  example. 

II.     Aids  to  Court  Reports. 

As  reports  accumulate,  two  or  three  or  more  a  year 
from  each  of  the  states,  others  from  federal  and  foreign 
courts,  obviously  some  digest,  index,  or  key  becomes 
necessary  in  order  that  their  contents  may  be  readily 
accessible. 

1.     Digests. 

A  digest  of  court  reports  somewhat  resembles  in  its 
purpose  the  index  of  a  book  or  the  subject  catalogue  of 
a  library.  It  presents  under  topics  or  subjects,  alpha- 
betically arranged,  brief  statements  of  the  propositions 
of  law  found  in  the  series  of  reports  digested.  Almost 
all  important  series  of  reports,  official  and  nonofficial, 
federal  and  state,  on  one  subject  or  on  many,  have  their 
digests. 


22  Law,  Legislative  Reference  and 

The  Cetitury  Digest,  or,  as  its  label  title  reads,  the  A  nieri- 
can  Digest:  Century  Edition,  is  the  most  important  of 
these  publications  and  has  been  called  the  most  ambitious 
and  important  law  publishing  enterprise  ever  under- 
taken. In  one  alphabet  of  fifty  volumes  it  digests  all 
American  case  law,  both  state  and  federal,  from  1658 
to  1896.  The  Decennial  Digest,  or  American  Digest, 
Decennial  Edition  continues  this  from  October,  1896  to 
September,  1906,  in  twenty-five  volumes.  About  two 
volumes  a  year  and  monthly  advance  sheets  bring  this 
to  date.'^  Current  Law,  a  continuing  publication,  issued 
in  two  volumes  to  the  year  and  covering  the  case  law 
decided  during  the  year,  maybe  classed  as  a  "digest." 

The  leading  similar  work  for  English  cases  is  Mews' 
English  Case  Law  Digest,  covering  the  period  from  the 
earliest  reports  to  1897.  Two  supplementary  volumes 
cover  1898  to  1907. 

2.     Tables  of  Cases. 

A  table  of  cases  is  an  alphabetical  list  by  the  names 
of  the  parties  involved  of  all  the  cases  reported  or  cited 
in  a  particular  book  or  series  of  books.  Its  purpose  is 
to  enable  a  person  at  a  glance  to  find  out  where  a  particu- 
lar case  has  been  reported,  or,  to  show  whether  the  book 
in  hand  reports  or  discusses  a  given  case. 

In  this  connection  the  last  four  volumes  of  the 
Decennial  Digest  must  be  especially  mentioned.  They 
contain  a  complete  table  in  one  alphabet  of  all  American 
cases  from    1658   to   1906,   covering   both   the   Century 

"  For  a  full  and  satisfactory  explanation  of  the  American  Digest 
system  and  the  Key-number  system  used  in  connection  with  it  see 
the  West  Company's  American  Digest  Manual,  a  pamphlet  of  thirty- 
eight  pages  describing  the  effective  use  of  their  "Key-number  sys- 
tem." An  additional  help  in  the  use  of  their  digests  was  published 
in  1912  under  the  title  Descriptive  Word  Index. 


Municipal  Reference  Libraries  23 

Digest  and  the  Decennial  Digest,  and  make  an  index  by 
title  to  about  725,000  cases. 

Volume  16  of  Mews'  Digest  forms  a  table  of  cases  for 
English  reports  coming  down  to  the  end  of  1897. 

3.     Citation  Books. 

Citators  or  citation  books  enable  one  to  trace  all 
references  or  citations  to  a  given  case  from  the  time  it 
was  decided  to  the  present.  Its  history  and  value  as 
an  accepted  authority  or  precedent  may  thus  be  followed 
step  by  step.  These  books  have  been  published  for 
many  of  the  states  and  for  certain  other  sets  of  reports. 
The  student  meeting  such  a  book  for  the  first  time 
should  give  careful  attention  to  the  explanation  of  its 
use  found  in  the  preface  as  it  is  a  unique  type  of  publica- 
tion of  great  value  when  properly  understood,  but  one 
which  has  often  proved  a  temporary  stumbling-block 
to  the  uninitiated. 

As  examples  there  are : 

Shepard's  Citations  (1  vol.  to  a  state). 

Taylor  s  Citations  (New  York), 

Rogers'  Citations  (Illinois). 

L.  R.  A.  Cases  as  Authorities. 

Citator  (separate  editions  for  various  states). 

III.     Briefs  of  Counsel. 

By  briefs  of  counsel  (briefs  and  points,  or  cases  and 
points)  are  meant  the  arguments  and  other  printed 
papers  presented  by  attorneys  in  cases  before  the  courts. 
These  papers  are  obviously  of  great  value  and  a  number 
of  the  larger  law  libraries  preserve  in  bound  volumes 
those  presented  before  the  United  States  Supreme  Court 
and  the  highest  court  of  the  states  in  which  they  are. 


24  Law,  Legislative  Reference  and 

The  New  York  State  Law  Library  at  Albany  has  secured 
since  the  fire  a  very  unusual  set  of  United  States  Supreme 
Court  briefs  covering  the  last  forty  years  and  other 
valuable  sets  will  be  found  in  the  Harvard  University 
Law  School  Library,  the  Library  of  Congress,  Law 
Division,  in  the  library  of  the  Bar  Association  of  the  City 
of  New  York,  in  the  L'nited  States  Supreme  Court,  and 
in  the  office  of  each  justice  of  the  court.  Columbia 
LIniversity  now  receives  the  current  briefs  of  Chief 
Justice  White's  set. 

IV.     Trials. 

Accounts  of  famous  trials  which  received  marked 
public  attention  in  their  day  and  age  or  which  were  of 
peculiar  interest  to  either  the  lawyer  or  the  layman 
have  been  published  in  large  numbers.  In  many  in- 
stances single  volumes  are  devoted  to  one  case.  In 
addition  there  are  noted  collections  of  causes  celebres 
which  are  coming  more  and  more  to  occupy  a  prominent 
place  on  the  shelves  of  the  largest  of  law  libraries.  Vol- 
ume two  of  the  catalogue  of  the  Harvard  University  Law 
School  Library  devotes  two  hundred  and  forty-six  pages 
to  trials  in  the  English  language  only,  which  are  in  that 
library. 

In  some  cases  narratives  of  trials  may  take  on  an 
ofificial  aspect  as  is  seen  particularly  in  impeachment  pro- 
ceedings against  judges  or  legislators  where  the  full 
official  stenographic  report  is  ordered  printed. 

(b)     Constitutions.Treaties,  AND  Statute  Lavv.'^ 
L     Constitutional  Convention  Proceedings. 
While  not  law  these  discussions  are  most  valuable 
as   showing   the    original    intent   of   the   framers   of   a 

'' C/.  supra.  Brief  Making,  p.  11-17;  Clark,  sees.  40-5.'i;  Robin- 
son, sees.  12-16  and  his  eitations. 


Municipal  Reference  Libraries  25 

constitution  and  assist  courts  in  deciding  cases  where 
an  interpretation  of  the  constitution  is  sought. 

2.  Annotated  Constitutions. 

The  constitution  is  the  fundamental  law  of  any  country 
and  statutes  must  be  made  in  conformity  to  it.  Anno- 
tated signifies  in  this  case  having  notes  from  text  books 
and  legal  decisions  which  explain  or  interpret  the  different 
sections  of  the  constitution. 

3.  Treaties:  They  are  all  federal. 

In  addition  to  their  use  in  the  relations  between  nations 
and  in  settling  questions  of  citizenship, .  federal  treaties 
are  frequently  consulted  by  the  administrative  officers 
of  states  bordering  foreign  governments  and  should  be 
available  in  the  law  library  of  the  capital.  The  Governor 
of  Texas  has  occasion  to  become  familiar  with  our  treaty 
with  Mexico,  not  only  on  account  of  border  depreda- 
tions, and  the  unsettled  conditions  of  affairs  in  that 
country,  but  also  because  the  question  of  extradition  of 
prisoners  is  constantly  arising.  Similarly,  our  treaty 
with  Japan  had  to  be  brought  forcibly  to  the  attention 
of  the  people  and  legislators  of  the  State  of  California, 
and  it  is  still  an  unsettled  question  whether  or  not  Cali- 
fornia has  usurped  power  which  can  only  be  exercised 
constitutionally  by  the  federal  government. 

The  latest  compilation  of  treaties  is  Senate  Document 
No.  357  of  the  61st  Congress,  2d  session,  (serial  no.  5646), 
two  volumes,  1910,  containing  the  treaties,  conventions, 
international  acts,  protocols,  and  agreements  between 
the  United  States  of  America  and  other  powers  from  1776 
to  1909,  complete  as  originally  negotiated  and  as  sub- 
sequently altered,  if  alterations  were  made.     A  third 


26  Law,  Legislative  Reference  and 

and  supplementary  volume  was  issued  in  1913  as  Senate 
Document  1063,  62d  Congress,  3d  Session,  covering 
treaties  and  other  international  acts  from  January  1, 
1910  to  March  4,  1913.  The  compilation  was  made  by 
Mr.  Garfield  Charles.  It  includes,  in  addition  to  treaties 
in  force,  those  treaties  and  other  agreements  ratifications 
of  which  had  been  advised  by  the  Senate  but  which  had 
not  been  put  into  force  up  to  the  date  of  the  publication 
of  the  volume.  There  is  now  in  preparation  still  another 
volume  of  treaties  to  be  mentioned  in  this  connection. 
It  is  entitled  Acts,  Treaties,  Proclamations,  Decisions,  and 
Opinions,  relating  to  and  Lists  of  Officials  in  the  Non-con- 
tiguous Possessions  of  the  United  States  and  also  in  Cuba 
and  Santo  Domingo.  It  will  appear  as  Sen.  Doc.  173  of 
the  63d  Congress. 

Current  treaties  are  published  by  the  LTnited  States 
Government  in  the  Session  Laws,  Statutes  at  Large,  the 
numbered  Treaty  Series  ^*  of  the  Department  of  State, 
occasionally  in  the  Congressional  set  of  government 
documents  as  was  done  in  the  case  of  the  amended 
arbitration  treaties  with  Great  Britain  ^^  and  France,^' 
and  at  irregular  intervals  in  compilations  of  treaties  in 
force. 

4.    Statutes. 

(a)     Congressional  Acts. 

The  Acts  of  Congress  are  first  published  for  the  public 
as  slip  laws  —  that  is  a  separate  printing  of  each  law 
which,  if  short,  occupies  merely  a  single  "slip"  — then  as 

'*  Published  in  limited  quantity  and  supplied  by  the  Department 
only  in  reply  to  specific  requests  for  particular  treaties. 

"  Published  with  Senate  amendments  in  62d  Cong.  2d.  Sess.  Sen. 
Doc.  476.  A  list  of  all  arbitration  treaties  submitted  to  and  acted 
upon  by  the  Senate  was  published  as  Sen.  Doc.  373,  same  Congress. 


Municipal  Reference  Libraries  27 

session  laws  (i.e.,  a  paper  bound  volume  containing  the 
laws  of  each  session  of  Congress  and  sometimes  called 
pamphlet  laws) ;  later  as  the  Statutes  at  Large,  volumes 
containing  the  laws  of  all  sessions  of  one  Congress.  There 
are  usually  two  volumes,  called  parts,  to  the  Statutes 
at  Large,  of  each  Congress.  The  second  includes  the 
latest  treaties. 

An  index  to  the  Statutes  at  Large  has  been  issued  in 
two  volumes  covering  in  volume  1  the  years  1873-1907 
and  in  a  second  though  really  preliminary  volume  the 
years  1789-1873.20 

All  the  laws  in  force  at  any  one  time  are  found  in  com- 
pilations or  revisions  known  as  the  Compiled  Statutes  or 
Revised  Statutes,  and  the  Statutes  at  Large,  Session  Laws, 
and  slip  laws  issued  subsequent  thereto. 

The  statutory  law  covering  a  particular  field  is  often 
published  separately  and  is  termed  a  code,  e.g.,  the  Penal 
Code,  although  "A  'code,'  to  confine  the  term  to  its 
more  proper  meaning,  is  a  systematic  statement  of  the 
law  intended  to  include  all  or  practically  all  legal  rules 
concerning  the  subject  treated."  ^^ 

(b)     State  Laws. 

The  laws  of  each  of  the  states  are  printed  in  forms 
analogous  to  those  just  enumerated.  A  number  pub- 
lish slip  laws;"  all  issue  session  laws  (called  statutes  in 

20  Volume  1  of  this  Index  Analysis  of  the  Federal  Statutes  was 
prepared  by  G.  W.  Scott  and  M.  G.  Beaman;  the  second  volume 
by  M.  G.  Beaman  and  A.  K.  McNamara.  For  reviews  see  Amer. 
Pol.  Set.  Rev.  V.  3,  p.  621-23  and  v.  5,  p.  650-51. 

-»  W.  F.  Dodd  in  Cyc.  of  Amer.  Gov't.  (D.  Appleton  Co.,  in  press.) 
^  Slip  laws  are  published  by  Alabama,  Arkansas,  California,  Con- 
necticut,  Indiana,   Massachusetts,    New  Jersey,   New   York,  Ohio, 
Oregon,  Pennsylvania,  the  Philippine  Islands,  and  \'irginia. 


28  Law.  Legislati\e  Reference  and 

one  or  two  instances).  The  states  do  not  now  publish 
so-called  statutes  at  large,  although  in  the  early  days  a 
few  did. 

For  the  states,  also,  there  are  compilations,  oflScial  or 
private,  of  the  laws  in  force  at  a  particular  time.  Com- 
pilations and  revisions  omit  the  laws  that  have  been  re- 
pealed. Their  subject-matter  is  usually  well  classified 
and  systematically  arranged,  often  alphabetically  by 
subjects.  Laws  omitted  by  mistake  from  official  com- 
pilations may  be  in\oked  in  court,  their  existence  proved 
and  their  rules  applied,  but  laws  omitted  from  official 
revisions  which  specifically  repeal  all  former  law,  are 
lost  forever  unless  the  legislature  re-enacts  them.  This 
is  because  revisions  are  re-enactments  of  the  state  laws 
as  a  whole.  Compilations  often  have  valuable  anno- 
tations citing  cases  where  the  laws  have  been  interpreted 
or  construed  by  the  courts. 

The  term  code  is  loosely  used,  and  has  various  mean- 
ings. Generally,  when  applied  to  state  law,  it  means 
the  statutory  law  covering  a  particular  field;  e.g.,  the 
Penal  Code,  Civil  Code,  Code  of  Criminal  Procedure, 
etc.  Codes  also  are  both  officially  and  privately  issued, 
though  no  "code,"  properly  so-called,  may  be  prepared 
unofficially. 

(c)     Text  Books. 

Text  books  or  treatises  have  been  published  on  all 
phases  and  branches  of  the  law.  They  are  exceedingly 
numerous  and  of  varying  authority,  the  authority  de- 
pending upon  their  authorship.  What  they  say  is  not 
law ;  it  is  the  writer's  opinion  of  what  the  law  is,  and  an 
exposition  and  interpretation  of  it.  Even  the  best  of 
text  books  are  but  "trustworthy  evidence"  of  what  the 


Municipal  Reference  Libraries  29 

law  really  is.^^     The  law  itself  is  found  only  in  treaties, 
constitutions,  decisions,  and  statutes. 
There  are  two  main  classes  of  textbooks: 

1.  General. 

Under  this  head  may  be  classed  general  treatises  such 
as  Clark's  Elementary  Law,  Walker's  American  Law, 
Blackstone's  Commentaries,  "Coke  on  Littleton,"  and 
special  treatises  on  particular  subjects,  for  example, 
Cooley  on  Torts,  Tiedeman  on  Real  Property,  Russell  on 
Crimes,  etc.,  etc.^^  Here,  too,  may  be  classed  the  numer- 
ous works  on  international  law  and  constitutional  law, 
many  of  them  avowedly  text  books  of  the  ordinary  type, 
but  others  reaching  far  beyond  and  almost  touching  the 
commanding  authority  of  the  law  itself,  as  is  evidenced 
by  the  place  they  held  in  the  esteem  of  contemporary 
jurists  and  the  position  still  accorded  them  by  present- 
day  legal  writers,  both  judges  and  commentators. 

2.  Local. 

This  refers  to  text  books  discussing  the  law  in  general 
or  some  particular  field  of  law  as  applied  in  a  definite 
community;  e.g.,  Fletcher  on  Illinois  Corporations,  Sears 
on  Corporations  in  Missouri,  etc. 

"  In  the  Paquette  Habana,  175  U.  S.  677  (Scott's  Cases,  p.  19), 
Mr.  Justice  Gray  says:  "...  where  there  is  no  treaty,  and  no  con- 
trolling executive  or  legislative  act  or  judicial  decision,  resort  must 
be  had  to  the  customs  and  usages  of  civilized  nations;  and,  as 
evidence  of  these,  to  the  works  of  jurists  and  commentators,  who 
by  years  of  labor,  research  and  experience,  have  made  themselves 
peculiarly  well  acquainted  with  the  subjects  of  which  they  treat. 
Such  works  are  resorted  to  by  judicial  tribunals,  not  for  the  specu- 
lations of  their  authors  concerning  what  the  law  ought  to  be,  but 
for  trustworthy  evidence  of  what  the  law  really  is." 

"  The  Hornbook  Series  of  over  35  vols,  is  a  well-known  series  of 
American  law  school  text  books.     (West  Pub.  Co.,  St.  Paul,  Mmn.) 


30  Law,  Legislative  Reference  and 

(d)     Encyclopedias  and  Dictionaries. 

1.  Examples  of  legal  encyclopedias  are  the  American 
and  English  EncyclopcBdia  of  Laic,  Second  Exiition,  thirty- 
two  volumes.  1905,  with  its  five-volume  Supplement 
1905-1908,  and  Cyclopedia  of  Law  and  Procedure,  forty 
volumes,  1901-1912,  with  its  separate  volume  of  ^««o/a- 
tions  (1913)  and  its  Index  and  Concordance  (1913),  known 
as  "Cyc."  The  former  covers  substantive  law  only,  the 
latter  both  substantive  and  adjective  law.  L'nder  its  440 
main  titles  there  is  thus  presented  an  encyclopedia  to 
practically  the  entire  field  of  law. 

2.  Law  Dictionaries:  These  define  legal  terms  and 
phrases,  including  foreign  law  terms,  particularly  from 
the  Latin  and  French,  so  frequent  in  English  law. 
Examples  are  John  Bouvier's  Law  Dictionary,  two  vol- 
umes, 1898;  H.  C.  Black's  Dictionary  of  Law,  last  edition 
1910;  and  Words  and  Phrases  Judicially  Defined,  eight 
volumes,  1905.  Among  the  dictionaries  of  special  terms 
may  be  named  Williamson's  Dictionary  of  French  Legal 
Words  and  Phrases  (Sweet  &  Maxwell,  Lond.,  1912),  and 
E.  Hilton  ]a.cksons Law-Latin,  edition  three,  Washington, 
1910,  for  translating  law-French  and  law-Latin  into 
English.  The  first  of  these  is  a  small  work  of  rather 
limited  value  for  translating  difiicult  and  technical  law- 
French  into  English.  A  bibliographical  list  of  the  prin- 
cipal law  dictionaries  in  English  and  foreign  languages 
will  be  found  in  the  introductory  pages  of  Henry  C. 
Black's  Dictionary  of  Law.  ^^ 

Definitions  of  terms  are  often  given  in  court  decisions 
and  are  thus  particularly  valuable  as  showing  how  the 
courts  actually  understand  and  use  them. 

**West  Pub.  Co.,  St.  Paul,  1910. 


Municipal  Reference  Libraries  31 

(e)     Periodicals,  Society  Proceedings. 

1.  Regular  Legal  Periodicals. 

e.g.,  Harvard  Law  Review,  Green  Bag,  Cen- 
tral Law  Journal,  etc.,  etc. 
They  contain  articles,  book  reviews  and  book 
notices,  notes  on  important  current  decisions  and 
sometimes  references  to  legal  articles  in  other  peri- 
odicals, both  legal  and  general. 

A  list  of  the  important  law  reviews  of  England, 
Canada,  and  the  United  States  is  represented  by  the  list 
of  periodicals  indexed  which  appears  at  the  beginning 
of  each  issue  of  the  Index  to  Legal  Periodicals  and  Law 
Library  Journal. 

2.  Bar  Associations'  Proceedings. 
Associations  of  members  of  the  legal  profession  are 

called  bar  associations.  These  associations  are  national, 
state,  county,  or  city.  Their  proceedings  contain  valu- 
able discussions  of  various  legal  problems  and  down  to 
1899  have  been  indexed  in  the  following  publication. 

Park,  Orville  A. 

An  Index  to  the  Publications  of  the  Various  Bar 
Associations  of  America.  .  .  .  86  p.  Atlanta,  Frank- 
lin Printing  &  Publishing  Co.,  1899. 

Jones'  Index  cited  below  also  covers  bar  associations'  reports 
and  with  the  appearance  of  volume  3  will  make  available  a 
new  store  of  important  discussions. 

At  this  point  it  might  not  be  going  too  far  afield  to 
consider  in  connection  with  these  legal  periodicals  and 
the  proceedings  of  legal  societies,  the  journals  devoted 
to  political  science  and  the  proceedings  of  the  more 
important  political  science  associations.  However,  as 
they  are  more  likely  to  deal  with  proposed  or  desired 
legislation  rather  than  actual  law  it  is  more  fitting  to  con- 
sider them  in  this  work  in  the  later  discussion  of  the 
materials  of  the  legislative  reference  library. 


32  Law,  Legislative  Reference  and 

3.     Indexes  to  Legal  Periodicals.-* 

(a)  Jones,  L.  A. 

Index  to  Legal  Periodical  Literature. 
3v.  1888-1914  (?).  V.  1  to  1887;  v.  2, 
1887-1899;  v.  3,  1900-1909 .^^ 

Bar  associations'  reports  and  legal  articles  in 
general  magazines  are  indexed  as  well  as  the  strictly 
legal  periodicals.  Volume  2  includes  numerous  ref- 
erences to  articles  on  political  science,  economics, 
and  sociology. 

(b)  Index  to  Legal  Periodicals  and  Law  Library 

Journal,  v.  1-,  1908-. 

This  index,  published  quarterly  with  annual 
cumulations,  covers  5.5  journals  and  the  legal  articles 
in  the  leading  general  magazines.  It  contains  an 
author  list,  and  a  subject  index  using  the  subject 
headings  of  the  West  Publishing  Company's 
"Digests." 

From  1901  to  1908,  in  volumes  15  to  21  the  Harvard 
Law  Review  published  an  "Annual  Index  to  Legal 
Articles."  Both  Case  and  Comment  and  the  Green  Bag 
offer  each  month  a  list  of  articles  of  interest  to  members 
of  the  legal  profession.  In  the  latter  publication  a  brief 
summary  accompanies  the  titles. 

And,  it  should  be  noted  further  that  the  regular  indexes 
to  general  magazines,  such  as  Poole's,  the  Readers' 
Guide,  the  Annual  Library  Index,  and  the  Magazine 
Subject-Index  are  guides  to  the  legal  articles  occasionally 
appearing  in  the  general  magazines  they  index. 

The  fact  that  bibliographies  often  contain  references 
to  periodical  articles  as  well  as  books  may  bear  mention 
in  this  connection. 

^^  See  "Available  Published  Indices  to  Legal  Literature"  in  A.  L.  A. 
Bui.  V.  1,  p.  252-54,  July,  1907;  "Report  on  the  Index  to  Legal 
Periodicals,"  in  A.  L.  A.  Bui.  v.  4,  p.  754-50,  Sept.  1910;  also  "Index 
to  Legal  Periodicals,"  in  L.  L.  J.  v.  3,  p.  16-18,  Oct.  1910. 

"  Vol.  3,  The  Boston  Book  Company,  1914,  in  preparation. 


Municipal  Reference  Libraries  33 

(f)     Government  Documents. 

The  term  "public  document"  has  had  a  varied  career 
from  the  standpoint  of  exact  definition.  Several  times 
it  has  been  the  concern  of  the  national  Congress  and  pre- 
sented difficulties  not  easily  settled  even  there.^^ 

The  generally  accepted  definition  promulgated  by  the 
Office  of  the  Superintendent  of  Documents  is: 

"Any  publication  printed  at  Government  expense  or 
published  by  authority  of  Congress  or  any  Government 
publishing  office  for  division  among  Members  of  Congress 
or  distribution  to  Government  officials  or  to  the  public, 
shall  be  considered  a  public  document." 

Adopting  this  definition  it  will  be  observed  that  there 
are  certain  public  documents  which  must  find  their 
way  even  into  a  library  limiting  its  acquisitions  to  strictly 
legal  material. 

Of  the  publications  already  considered  the  official 
Reports  of  federal  courts,  discussed  on  p.  14-16  and  the 
so-called  semi-judicial  decisions  and  opinions,  p.  19-20, 
fall  within  the  definition  of  public  documents. 

Of  the  first  group,  the  Reports  of  the  United  States 
Supreme  Court  are  officially  issued  by  the  court  reporter 
and  must  be  sold  to  the  public  at  a  price  not  to  exceed 
$1.75  per  volume.^^  They  are  printed  by  the  Banks  Law 
Publishing  Co.,  New  York,  under  an  agreement  between 
the  company  and  the  reporter.  The  Reports  of  the 
United  States  Circuit  Court  of  Appeals  are  sold  for 
$5.00  by  the  Lawyers'  Co-operative  Publishing  Co., 
Rochester,  New  York. 


'  U.  S.  Superintendent  of  Documents  Checklist  of    United  States 
lie  Documents,  1789-1909.      Ed.  3.     Wash.  1911.     (See  Intro. 


28 

Public 
p.  vii.) 

^  Public  Laws  of  the  U.  S.  1910-1911,  chap.  231,  sec.  226;  p.  1153. 


34  Law,  Legislative  Reference  and 

The  Circuit  Court  and  District  Court  decisions  are 
reported  privately  and  appear  in  the  Federal  Reporter '° 
which  also  contains  the  decisions  of  the  Circuit  Court  of 
Appeals  and  the  Commerce  Court.'^ 

Court  of  Claims  Reports  are  made  to  Congress;  the 
decisions  are  published  by  the  Superintendent  of  Docu- 
ments and  sold  to  individuals  at  prices  ranging  from 
$.40  to  $1.75  per  volume. 

The  decisions  of  the  Court  of  Customs  Appeals  were 
until  recently  published  in  the  Treasury  Decisions, 
volumes  of  which  sell  at  $L25  to  $L50  and  are  obtain- 
able from  the  Superintendent  of  Documents.  The 
new  series  of  separate  reports  of  this  court  may  be 
obtained  from  the  same  officer  at  $1.00  per  volume. 

The  second  group  —  the  semi-judicial  decisions  and 
opinions  —  are  all  received  by  depository  ^^  libraries  free 
of  cost  and  in  some  cases  may  be  obtained  from  the 
issuing  office  without  charge.  All  may  be  purchased 
from  the  Superintendent  of  Documents,  Washington, 
D.  C,  at  a  reasonable  price,  noted  in  the  various  price 
lists  issued  by  him.^^     Single  decisions,  particularly  if  of 

*"  See  p.  17,  infra. 

*i  Also  published  separately  in  U.  S.  Attorney-General:  Cases 
Brought  in  the  Cemmerce  Court,  Wash.  1912.  (62d  Cong.  2d  Sess. 
S.  Doc.  789.) 

^  See  p.  93,  and  93  note  47  infra. 

33  (a)  Inter.  S.  Comm.  Comm.  Decisions,  price  list  25,  $1.5(>-$2.00. 

(b)  Commr.  of  Pat.  Decisions,  price  list  29,  Sl.00-S2.00. 

(c)  Decisions  of  Dept.  of  Int.  &  Gen.  Land  Off.  price  list  20, 
$1.75-52.50.  (A  two- volume  Digest  to  volumes  1  to  40  has  recently 
been  published.) 

(d)  Compt.  of  Treas.  Treas.  Decisions,  price  list  37,  $1.25-$1.50. 

(e)  Compt.  of  Cur.  Dig.  of  Nat.  Bank  Decisions,  current  1912, 
$.65  (Mo.  Cat.) 

(f)  Attorney-General:   Opinions:   Write  for  price. 

(g)  Judge- Advocate-General:  Digest  of  Opinions,  1862-1912, 
$1.50. 


Municipal  Reference  Libraries  35 

much  general  interest,  are  often  published  in  the  Con- 
gressional documents  quite  apart  from  any  series  of 
reports  such  as  have  been  named,  and  are  usually  ordered 
printed  by  a  resolution  of  the  Senate  or  House.  Instances 
of  this  are  the  decisions  in  the  Standard  Oil  Case  and  the 
American  Tobacco  Company  Case  which  were  published 
as  Senate  documents  34  and  40,  respectively,  of  the 
sixty-second  Congress,  first  session.  Collected  decisions 
may  occasionally  be  published  in  the  same  manner 
apart  from  any  regular  series  of  court  reports.  Examples 
are  the  decisions  of  the  Commerce  Court  noted  above 
and  the  Condensed  Report  of  the  Findings  of  the  Court  of 
Claims  in  all  the  French  Spoliation  Claims  that  have 
come  before  it,  printed  for  the  use  of  the  Committee  on 
Claims  of  the  House,  1912. 

Additional  types  of  legal  publications  are  found  in 
the  federal  government  documents.  These  include,  of 
course,  the  federal  laws  themselves  —  the  slip  laws, 
session  laws,  statutes  at  large,  and  revised  statutes — , 
the  Journals  of  the  House  and  Senate  and  the  bills 
introduced  into  both  Houses,  although  these  may  be 
obtained  from  members  only.  Compilations  such  as 
Thorpe's  Constitutions,^^  Moore's  Digest  of  International 
Law,^^  the  federal  treaties,^^  the  Anti-trust  Decisions, ^"^ 

'*  F.  N.  Thorpe,  Federal  and  State  Constitutions,  Colonial  Charters 
and  Other  Organic  Laws  of  the  States,  Territories  and  Colonies.  7  v. 
Wash.  1909.  (59th  Cong.  2d  Sess.  H.  Doc.  357:  Serial  nos.  5190- 
94.) 

^  J.  B.  Moore,  Digest  of  International  Law.  8v.  Wash.  1906. 
(56th  Cong.  2d.  Sess.  H.  Doc.  551:  Serial  nos.  5202-06.) 

^^  U.  S.  Foreign  Relations,  Committee  on  (Senate)  Treaties,  Con- 
ventions, International  Acts,  Protocols,  and  Agreements  between  the 
United  States  and  other  Powers,  1776-1909,  compiled  by  W.  M. 
Malloy.  2v.  1910.  (61st  Cong.  2d  Sess.  S.  Uoc.  357:  Serial  no. 
5646),  also 

—  Treaties,  Conventions,  International  Acts,  Protocols,  and  Agree- 
ments Between  the  United  States  of  America  and  other  Powers:  Supple- 


36        •  Law,  Legislative  Reference  and 

are  all  valuable  additions  to  law  libraries.  Numerous 
other  publications  might  be  added  to  the  list,  but  those 
gi\'en  ser\'e  as  examples.  Compilations  of  federal,  state, 
and  foreign  laws  often  issued  by  some  government 
office  will  be  considered  in  another  connection  and  the 
whole  subject  of  public  documents  will  receive  further 
treatment  where  the  subject  recurs  in  the  discussion  of 
legislative  reference  work. 

The  reports  of  state  courts  when  \iewed  as  state  public 
documents  would  rank  as  the  most  important  state 
publications  from  a  law  library  point  of  view.  The 
opinions  of  the  state  attorney-general,  state  railroad 
commissions'  reports,  quasi -judicial  decisions  of  admin- 
istrative officers,  compilations  of  the  laws  of  a  state  on  a 
particular  subject,  and  the  legislative  journals  are  state 
documents  of  value  to  the  law  library. 

Of  municipal  documents,  charters,  ordinances,  and 
city  council  proceedings  are  the  most  important  in  this 
connection.  Here  again  fuller  discussion  must  be  re- 
served in  regard  to  these  documentary  materials  until 
the  subjects  recur  in  the  later  discussions  of  legislative 
and  municipal  reference  work. 

(g)     Legal  Miscellany. 

Under  this  con\enient  term  may  be  grouped  several 
useful  types  of  legal  publications  not  readily  classified 

ment,1913,  to  Senate  Document  357,  Sixty-first  Congress,  Second  Session, 
compiled  by  Garfield  Charles,  v.  3,  443,  viii  p.  Wash.  1913.  (62d 
Cong.  3d.  Sess.  Sen.  Doc.  1063.) 

—  Acts,  Treaties,  Proclamations,  Decisions,  and  Opinions,  relating  to 
and  Lists  of  Officials  in  the  Non-contiguous  Possessions  of  the  United 
States  and  also  in  Cuba  and  Santo  Domingo.    (63d  Cong.  S.  Doc.  173.) 

—  Compilation  of  Treaties  in  Force.     1904.     (Serial  no.  4622.) 

"  U.  S.  Attorney-General.  Federal  Anti-Trust  Decisions,  compWed 
by  J.  A.  Finch.  4v.  Wash.  1912.  (61st  Cong.  2d  Sess.  S.  Doc. 
Ill:   Serial  nos.  6100-03.) 


Municipal  Reference  Libraries  37 

elsewhere.  It  would  include  collective  and  individual 
biographies  of  lawyers,  jurists,  and  statesmen,  legal  his- 
tory, essays,  legal  bibliography,  legal  directories,  and  the 
Proceedings  of  the  American  Association  of  Law  Libraries. 
In  the  limited  space  allowed  for  these  topics  only  legal 
bibliography  and  legal  directories  will  receive  particular 
attention. 

L     Legal  Bibliography.'^ 
(a)     General. 
Among  the  important  titles  in  this  class  should   be 
named : 

Bibliographie  Generale  et  Complete  des  Livres  de 
Droit  et  de  Jurisprudence  publics  jusqu'au  24  Octobre , 
1910.      xxxiii,    183  p.      Paris,    Marchal  et  Godde, 
1911. 
(Has  an  alphabetical  subject  and  author  index). 

^  At  the  joint  session  of  the  Bibliographical  Society  of  America, 
the  National  Association  of  State  Libraries,  the  American  Associa- 
tion of  Law  Libraries,  and  the  Special  Libraries  Association,  held 
June  28,  1912,  during  the  Ottawa  Conference  of  the  American 
Library  Association,  several  papers  of  interest  and  value  in  connec- 
tion with  the  subject  of  legal  bibliography  were  presented.  They 
appear  in  part  in  the  Law  Library  Journal  part  of  the  Index  to  Legal 
Periodicals  and  Law  Library  Journal  in  the  issues  of  1912-1913. 
The  titles  are: 

"Legal  Systems  of  Canada,  with  a  list  of  Statutes  and  other 
Legal  Papers  of  the  Province  of  Quebec,"  by  Dean  Walton  of  McGill 
University  Law  School. 

"Present  Status  of  Legal  Bibliography,"  by  Dean  Wigmore  of 
Northwestern  University  Law  School. 

"Bibliography  of  International  and  Foreign  Law  .  .  .  ,"  by  Ed- 
win M.  Borchard,  formerly  Law  Librarian  of  the  Library  of  Congress. 

"Books  of  the  Beginning,"  by  Miss  Margaret  C.  Klingel^mith, 
Librarian  of  the  Biddle  Law  Library  of  the  University  of  Pennsyl- 
vania. 

"Bibliography  of  Canadian  Law,"  by  Professor  Magoun  of  McGill 
University. 

The  proceedings  of  the  American  Association  of  Law  Libraries 
for  1912  and  1913  contain  other  papers  of  interest  to  law  librarians 
which  will  appear  in  the  Law  Library  Journal. 


38  Law,  Legislative  Reference  and 

Borchard,  Edwin  ^L 

Guide  to  the  Law  and  Legal  Literature  of  Ger- 
many.    Wash.  1912. 

The  first  of  a  series  of  Guides  to  Foreign  Law  to  be  issued  by 
the  Library  of  Congress  under  the  direction  of  Mr.  Borchard, 
formerly  Law  Librarian.  For  a  review  of  this  number  see 
Library  Journal,  July,  1912,  p.  405-06  (vol.  37,  no.  7). 

The  second  of  the  series  entitled.  The  Bibliography  of  Inter- 
national Law  and  Continental  Law,  appeared  early  in  1913. 
It  is  a  critical  commentary  on  the  bibliographic  material  avail- 
able in  these  fields  in  whatever  form  published.  Titles  cited 
briefly  in  the  text  appear  in  full  in  the  footnotes  with  complete 
details  of  imprint. 

Brief  Making  and  the  Use  of  Law  Books,  Ed.  2. 
Edited  by  Roger  \V.  Cooley.  West  Pub.  Co.,  St. 
Paul.  1909.  (First  edition  edited  by  Nathan  Abbott, 
1906.) 

Clarke,  John. 

Bibliotheca  legum;  or,  Complete  Catalogue  of 
Common  and  Statute  Law-Books  of  the  United 
Kingdom.     New  ed.     Lond.  1819. 

Hicks,  Frederick  C. 

Aids  to  the  Study  and  Use  of  Law  Books,  a  selected 
List,  Classified  and  Annotated,  of  Publications  relat- 
ing to  Law  Literature,  Law  Study,  and  Legal  Ethics. 
129  p.    N.  Y.    Baker,  Voorhis  &'Co.,  1913. 

A  handy  bibliographical  guide  composed  chiefly  of  annotated 
titles  of  books  and  articles  about  law  books.  Chapters  I  and  IX 
note  references  on  "Law  Study"  in  the  United  States  and  in 
England,  and  "Legal  Ethics,"  respectively.  Entries  are  num- 
bered consecutiv-ely  throughout  the  book  from  1  to  226. 

Journal  of  the  International  Institute  of  Legal  Bib- 
liography, American  edition,  ed.  by  Edwin  M. 
Borchard,  Law  Librarian  of  the  Library  of  Congress. 

This  is  known  as  the  Bibliography  of  Legal  Science  Sind  is  pub- 
lished monthly  in  five  languages  by  the  Bibliographischer 
Zentralverlag,  Berlin.  The  entries  give  full  name,  title,  place, 
date,  a  brief  descriptive  resume  of  the  contents  where  not 
sufficiently  indicated  by  the  title,  publisher,  size,  and  price. 


Municipal  Reference  Libraries  39 

In  quoting  titles  the  language  of  the  original  is  followed.  It  is 
$5  a  year  to  members  and  $6  to  non-members  of  the  Institute. 
A  systematic  table  of  contents  appears  in  each  issue  classi- 
fying the  entries  under  the  following  headings:  1.  General. 
2.  History  of  Law  and  Jurisprudence.  Biography.  3.  Philoso- 
phy. Science.  4.  Comparative  Jurisprudence  and  Ethnolog- 
ical Jurisprudence.  5.  Civil  (Private)  Law.  (i.  Organization 
of  Courts.  7.  Civil  Procedure.  Bankruptcy.  Non-conten- 
tious Jurisdictions.  8.  Criminal  Law.  9.  Criminal  Pro- 
cedure. 10.  Execution  of  Criminal  Sentences.  11.  Crimi- 
nology. 12.  Constitutional  Law.  13.  Administrative  Law. 
14.  Ecclesiastical  Law.  15.  Colonial  Law.  16.  International 
Law.     Law  of  Nations. 

Marvin,  J.  G. 

Legal  Bibliography;  or,  Thesaurus  of  American, 
English,  Irish,  and  Scotch  Law  Books,  with  some 
Continental  Treatises,  Observations  upon  their 
various  Editions  and  Authority  (and)  a  List  of 
Abbreviations.     Phil.  1847. 

Muhlbrecht,  Otto. 

Wegweiser  durch  die  neuere  Litterature  der 
Rechts-  und  Staatswissenschaften  fiir  die  Praxis 
bearbeitet.     2  v.     Ed.  2.     Beriin,  1893-190L 

.V.   1,  to  1892;    v.  2,  1893-1900.     This  is  a  classified 

list  with  an  alphabetical  index.  The  bibliographical  details 
given  include  prices.  Volume  1  contains  34,000  titles  and 
48,000  names  in  the  index.  It  has  been  called  the  most  com- 
prehensive bibliography  of  jurisprudence  and  political  science 
and  is  especially  useful  for  foreign  law.     It  is  continued  by 

Miihlbrecht,  Otto. 

Uebersicht  der  gesammten  Staats-  und  Rechts 
Wissenschaftlichen  Litterature.     Berlin,  1900-  date. 

Published  bi-monthly  but  with  an  annual  index;  entries 
are  numbered  consecutively  from  January  to  December  each 
year.  The  first  number  appeared  in  1868.  The  separate 
issues  have  the  title  Allgemeine  bibliographic  der  staats-  und 
rechtswissenschaften,  Uebersicht  der  auf  diesen  gebieten  im  deut- 
schen  und  ausldndischen  Buchhandel  neu  erschienenen  lilteratur. 

Soule,  Charles  C. 

Lawyer's  Reference  Manual  of  Law  Books  and 
Citations.     BosL.  1883,  1884. 


40  Law,  Legislative  Reference  and 

Stammhammer,  Josef. 

Bibliographie  der  Social  Politik.  2  v.  Jena,  1896- 
1912. 

This  is  an  author  Hst  with  a  subject  index.  It  includes 
books,  pamphlets,  and  periodicals  in  various  languages,  with 
emphasis  on  the  German,  government  publications  and  analy- 
tical references.  There  is  no  annotation  but  the  entry  con- 
tains full  bibliographical  details. 

Townes,  J.  C. 

Law  Books  and  How  to  Use  Them.  191  p. 
Austin,  Tex.,  1909. 

A  partial  legal  bibliography.     17  p. 

Wigmore,  J.  H. 

Preliminary  Bibliography  of  Modern  Criminal 
Law  and  Criminology.  Chicago,  1909.  (North- 
western L^niversity  Law  School,  Gar\'  Library  of 
Law.    Bulletin  no.  1). 

An  author  list  of  100  pages  followed  by  lists  of  serials 
arranged  alphabetically  under  country,  6  pages,  and  a  list  of 
government,  congresses',  societies',  and  institutions'  reports, 
proceedings,  and  other  publications,  20  pages,  arranged  by 
countries. 

(b)     Law  Library  Catalogues. 
Catalogues  of  Law  Libraries  are  among  the  best  bibli- 
ographical  sources  and  a  list  of  those  useful    in   this 
connection  would   be  too  extensive  for  inclusion  here. 
The  following  are  worthy  of  special  mention. 

1.  Association  of  the  Bar,  New  York  City. 

1892. 

2.  Chicago   Law  Institute.     1902.     (Annual 

Supps.) 

3.  Comite  de  Legislation,  Paris.   1879;   1889; 

1902. 
(These  rank  among  the  most  important  Cata- 
logues of  comparative  law.) 

4.  Gray's  Inn.     1900. 

5.  Harvard  University  Law  School.  2  v.  1909. 

(.•\n  author  list  with  subject  index  to  follow.) 


Municipal  Reference  Libraries  41 

6.  Incorporated  Law  Society,  London.  189L 

Supp.     1891-1906.     1906. 

7.  Indiana  State  Library. 

8.  Law  Library  Association  of  Saint  Louis. 

1895. 

9.  Library  of  Congress.    Law  Division. 

Printed   catalogue   cards   now   available  for  its 
collection. 

10.  Lincoln's    Inn.       1859.       Supps.       1862; 

(1867?);    1890. 

11.  Maryland  State  Law  Library.     1895. 

12.  Massachusetts  State  Library.     Catalogue 

of  the  Laws  of  Foreign  Countries  in  the 
State  Library.  .  .  .     1911.     1911. 

13.  Massachusetts  State  Library.      Hand-list 

of  Legislative  Sessions  and  Session  Laws, 
Statutory  Revisions,  Compilations,  Codes, 
etc.,  and  Constitutional  Conventions  of  the 
United  States  and    its   Possessions,    and 
of  the  Several  States  to  May,  1912.     1912. 
Not  a  full  catalogue  but  a  comprehensive  check- 
list covering  not  only  items   in  the  state  library, 
but  all   discoverable   titles  pertinent  to  the  list. 
(See  p.  43-44,  post.) 

14.  Michigan  State  Law  Library,     1896. 

15.  Middle  Temple.     1880. 

16.  New    York    State    Law    Library.     1856. 

Subject-index  1882;  Supps.  1893;  1904. 

17.  Ohio  Supreme  Court  Library.     1910. 

18.  Pennsylvania  State  Library.     1899. 

19.  Reichsgericht.         Leipsic,     1882;      1890. 

(Mimeographed  Supps.) 

20.  Reichsjustizamt.    Ed.  3.    Berlin,  1909. 

21.  Reichstag  Library.     3  v.     1896. 

22.  San  Francisco  Law  Library.     1888. 

23.  Signet  Library,  Edinburgh.  2  v.   1871-72. 

24.  United  States  Department  of  Justice.  1904. 
(c)     Dealers'  and  Publishers'  Catalogues. 

Dealers'  and  Publishers'  Catalogues  and  lists  of  pub- 
lications have  their  place  in  a  list  of  legal  bibliographies. 


42  Law,  Legislative  Reference  and 

A  s.hort  list  of  prominent  dealers  follows;  the  list  is 
representative  and  in  no  sense  to  be  considered  a  "select" 
list. 

1.  Baker.  Voorhis  &  Co.     N.  V. 

2.  Banks  Law  Publishing  Co.     N.  Y. 

3.  Bancroft-Whitney  Co.     San  Francisco. 

4.  Boston  Book  Co.     Boston. 

5.  Callaghan  &  Co.     Chicago. 

(3.  Carswell  &  Co.     Phil.  &  Toronto. 

7.  T.  H.  Flood  &  Co.     Chicago. 

8.  Kelly  &  Son.     London. 

9.  Lawyers'  Co-operative  Pub.  Co.    Roches- 

ter. 
10.     Little,  Brown  &  Co.     Boston. 
U.     Martinus  Xijhoft.    The  Hague. 

12.  Stevens  &  HaNTies.     London. 

13.  Stevens  &  Sons.     London. 

14.  Sweet  &  Maxwell,  Publishers. 

Catalogue  of  Modern  Law  Books.  Lond. 
1895.  (First  ed.  bv  Herbert  G.  Sweet, 
1883;  this  compiled  by  \V.  H.  Maxwell). 

15.     .     Catalogue  of  the  more  important 

British  and  Colonial  Law  Books  pub- 
lished during  the  last  Twelve  Years,  with 
a  list  of  Current  Periodicals  and  a  full 
Index  of  Subjects;  a  Supplement  to 
(their)  "Catalogue  of  Modern  Law 
Books."     Lond.     1904. 

Reprinted  annually,  with  additions  to  date. 

16.  West  Pub.  Co.     St.  Paul. 

17.  Wildy  &  Co.     London. 

(d)     American  Statute  Law. 

The  bibliography  of  American  statute  law  is  a  sub- 
ject that  has  received  increasing  attention  in  recent 
years.  It  has  been  much  discussed  in  the  proceedings  of 
the  American  Association  of  Law  Libraries  particularly 


Municipal  Reference  Libraries  43 

in  connection  with  the  attempts  of  certain  large  insti- 
tutions to  complete  sets  of  state  session  laws.  No  com- 
plete bibliography  ^^  is  yet  published,  but  there  are  in 
print  several  check-lists  so  carefully  prepared  and 
approaching  completeness  so  nearly  that  the  lack  of  a 
comprehensive  bibliography  with  full  bibliographic  de- 
tails is  rarely  felt. 

The  best  lists  of  session  laws,  statutes,  and  so  forth 
for  the  American  states  and  the  United  States  will  be 
found  in  the  Catalogue  of  the  United  States  Depart- 
ment of  Justice  Library,  Washington,  1904;  the  Cata- 
logue of  Harvard  University  Law  School  Library,  two 
volumes,  1909;  and  particularly  in  the  Handlist  of 
Legislative  Sessions,  and  Session  Laws,  Statutory  Revisions 
Compilations,  Codes,  etc.,  and  Constitutional  Conventions 
of  the  United  States  and  its  Possessions  and  of  the  several 
States  to  May,  1912,  prepared  by  Charles  J.  Babbitt 
under  the  direction  of  Charles  F.  D.  Belden,  librarian 
of  the  Massachusetts  State  Library,  Boston,  1912. 

This  Handlist  of  American  Statute  Law  is  a  compre- 
hensive volume  of  six  hundred  and  thirty-four  pages  in 
which  the  states  and  possessions  of  the  L'nited  States 
are  arranged  alphabetically.  For  each  state  the  data 
given  include: 

(1)  Historical  (brief  statements  noting  changes  of 
government,  chronologically  arranged). 

(2)  Bibliography  (giving  the  name  of  the  state 
legislative  body,  the  name  applied  to  the  session  laws, 
and  the  title  of  any  previous  bibliography  of  the  state 
laws) . 

(3)  Session  Laws  (arranged  chronologically). 

'9  Cf.  Charles  J.  Babbitt.  "Stumbling  Blocksand  Pitfalls  in  Session 
Laws."     (L.  L.J.b:  25-35  July-Oct.  1912.) 


44  Law,  Legislative  Reference  and 

(4)  Statutes  (compilations,  revisions,  digests,  codes; 
arranged  chronologically). 

(5)  Constitutional  Conventions,  Constitutions,  etc. 
(chronologically  arranged  and  preceded  by  a  state- 
ment giving  the  date  of  the  constitution  in  force,  1912). 
An   appendix    (p.  623-631)    furnishes  a  bibliography 

of  the  tribal  laws,  treaties,  etc.,  of  the  American  Indian 
tribes  with  the  United  States  arranged  alphabetically 
by  the  name  of  the  Indian  tribe,  then  chronologically. 
There  is  a  tvvo-page  index,  p.  633-634. 

Bibliographies  of  American  Colonial  laws  will  be  found 
in  A.  R.  Hasse's  Materials  for  a  Bibliography  of  the  Pub- 
lic Archives  of  the  Thirteen  Original  States,*'^  and  in  the 
Pennsylvania  Historical  Societ>-'s  volume  entitled  the 
Charlemagne  Tower  Collection  of  American  Colonial  Laws  *'^ 
The  Massachusetts  Handlist  of  American  Statute  Law 
mentions  in  the  data  preceding  the  list  of  laws  for  each 
state  any  bibliographies  of  Colonial  laws  that  may  be 
available. 

Certain  committees  of  the  American  Association  of 
Law  Libraries  have  published  reports  both  interesting 
and  valuable  in  this  connection;  for  example,  the  "Re- 
port of  the  Committee  on  the  Bibliography  of  American 
Statute  Law"  ^2  and  the  "Report  of  the  Committee  on 
Reprinting  Session  Laws."^' 

Attention  may  be  called  also  to  the  Bibliography  of 
Statute  Law  of  Southern  States,  parts  I-III,  by  Theodore 
Lee  Cole,  in  the  Publications^"^  of  the  Southern  History 
Association,  Washington,  D.  C,  1897.  In  addition  there 
is  for  Texas  C.  \V.  Raines'  Bibliography  of  Texas,  being  a 

**  American  Historical  Association  Annual  Report,  1906,  v.  II, 
p   239-50 1. 

"  29K  p.  Phil.,  1890. 
»L.L.  J.  3:29  jg. 
"76.  4:31-35. 
«»  1:  61  sq. 


Municipal  Reference  Libraries  45 

descriptive  List  oj  Books,  Pamphlets,  and  Documents  relat- 
ing to  Texas  in  Print  and  Manuscript  since  1536,  including 
a  Complete  Collation  of  the  Laws,  zvith  an  introductory 
Essay  on  the  Materials  of  early  Texas  History}'^  Appendix 
number  one  contains  "Conventions  and  Constitutions 
relating  to  Texas,  and  the  Collation  of  the  Laws  of  the 
Republic  and  State,  all  in  chronological  Order."  ^^ 
(e)     Canadian  and  Latin-American  Law. 

A  "Bibliography  of  Canadian  Statute  Law"  has 
appeared  in  the  Law  Library  Journal}'^ 

The  report  of  the  committee  of  the  American  Asso- 
ciation  of   Law   Libraries   on   securing   Latin-American 
Laws  contains  a  preliminary  list  of  such  laws.*^ 
2.     Directories. 

Legal  directories  contain  lists  of  lawyers  by  locality 
and  often  brief  abstracts  of  the  important  laws  of 
various  states  and  countries.  In  some  the  rating  or 
local  standing  of  an  attorney  is  indicated  by  a  symbol. 
Owners  of  directories  may  obtain  keys  interpreting  these 
symbols.  Martindale's  American  Law  Directory,  annual, 
is  a  prominent  example. 
3.     Handling  of  MateriaL 

(a)      ACQUISITION.49 
The  first  step  in  a  book's  library  history  is  its  acquisi- 
tion, often  a  more  difficult  procedure  than  one  would 

«  xvi,  268  p.     Q.  Austin,  1896.     (Well  annotated.) 

«  P.  227-46. 

^'  1:  61  sq.  and  2:  65-75,  by  W.  G.  Eakins. 

^sSeeL.  L.  J.  3:  22-26. 

*^  For  general  discussions  of  the  work  of  a  library's  order  depart- 
ment the  reader  is  referred  to  the  files  of  the  Library  Journal,  Public 
Libraries,  the  A.  L.  A.  Bulletin,  Dr.  Arthur  E.  Bostwick's  American 
Public  Library  (Chap.  XI),  the  A.  L.  A.  Manual  of  Library  Economy , 
pre-print  of  chap.  XVII  (by  F.  F.  Hopper)  and  the  bibliographical 
references,  p.  25-29,  of  the  last  named  source. 


46  Law,  Legislative  Reference  and 

suppose  even  when  sufficient  funds  are  available.  The 
difficulty  may  be  that  the  book  is  old  and  out  of  print, 
or,  may  be  due  to  lack  of  full  bibliographical  informa- 
tion in  regard  to  it,  such  as  the  lack  of  the  author's  full 
name,  the  exact  title,  the  publisher's  name,  the  place  of 
publication,  date,  or  edition. 

1.  Purchase. 

A  large  proportion  of  a  law  library's  books  will  be 
acquired  by  purchase  and  a  representative  list  of  dealers 
in  and  publishers  of  legal  literature  will  be  found  on 
p.  42  above. 

The  trade  catalogues  of  these  and  other  dealers, 
bibliographies,  and  law  library  catalogues,^"  including 
particularly  a  depository  catalogue  of  the  Library  of 
C-ongress,^^  are  the  sources  for  ascertaining  the  full  biblio- 
graphical information  that  may  be  needed  in  order  to 
supply  a  dealer  with  a  proper  description  of  the  book 
desired. 

2.  Exchange. 

Some  law  libraries  are  in  a  position  to  receive  a  large 
amount  of  material  by  exchange.  This  is  particularly 
true  of  state  law  libraries  or  law  divisions  of  state  libra- 
ries in  whose  hands  the  distribution  of  the  state's  official 
court  reports,  session  laws,  and  compiled  statutes  is 
often  placed.  Even  when  this  function  is  reserved  for 
the  office  of  the  Secretary  of  State  the  law  library  is 
usually  the  ultimate  recipient  in  such  exchange  relations 
between  Secretaries  of  State. 

*"  Cf.  sees.  2.  g.  1.  a-€  (Legal  Bibliography). 

"  The  Library  of  Congress  is  depositing  in  a  number  of  libraries 
a  complete  set  of  its  printed  catalogue  cards.  Such  a  catalogue  is 
known  in  library  piirlance  as  a  "depository  catalogue." 


Municipal  Reference  Libraries  47 

3.     Gift. 

Law  libraries,  as  other  such  institutions,  are  often 
beneficiaries  receiving  valuable  gifts  particularly  in  the 
shape  of  private  libraries  bequeathed  by  prominent 
lawyers  and  judges. 

Government  documents  form  another  important  class 
of  gifts  to  which  attention  is  called  in  another  place.^^ 

(b)     Classification. 

The  law  itself  has  been  classified  by  many  writers, 
but  it  is  not  so  with  legal  publications.  There  is  no 
generally  accepted  standard,  scientific  classification  for 
the  material  to  be  cared  for  in  law  libraries.  One  or 
two  use  the  Cutter  system,  general  libraries  often  try  to 
apply  the  Dewey  system  to  their  legal  works,  and  occa- 
sionally libraries  have  worked  out  systems  of  their  own. 

The  reason  for  this  lack,  not  felt  in  most  branches  of 
library  work,  is  that  law  books  fall  naturally  into  a  few 
pretty  well  defined  groups  and  no  elaborate  classifica- 
tion involving  a  detailed  system  of  notation  is  generally 
considered  essential. 

So  it  is  that  classification  numbers,  book  numbers,  and 
shelf  marks,  in  fact  notation  of  any  kind,  can  readily  be 
dispensed  with,  though  a  shelf  mark  of  some  kind  is 
useful  on  material  which  does  not  readily  fall  into  a 
well-defined  group,  for  example,  a  book  of  miscellaneous 
essays,  a  volume  of  anecdotes,  and  the  book  which  may 
properly  be  classed  as  either  a  trial  or  a  biography,  and 
so  on.  In  some  law  libraries  all  such  material  of  a  gen- 
eral, miscellaneous,  or  indefinite  character  would  be 
thrown  with  text  books  and  called  as  a  group  simply 
"general." 

»2  p.  ig-20,  33-36,  supra;  also  p.  91-128;  261-88,  post. 


48  Law,  Legislative  Reference  and 

The  argument  regarding  classification  in  a  law  library 
relates  almost  entirely  to  text  books.  The  question  is: 
Should  these  be  arranged  alphabetically  by  authors  or 
should  all  text  books  be  arranged  in  groups  according 
to  subjects,  that  is,  classified?  And,  if  classified,  should 
there  be  a  few  large  groups  or  numerous  smaller  divi- 
sions? Further,  shall  these  groups  themselves  be  ar- 
ranged alphabetically  or  in  some  other  arbitrary  fashion? 

Those  who  argue  for  a  simple  alphabetical  arrangement 
of  law  text  books  by  author  claim  these  advantages: 

1.  That  a  book  can  be  found  and  delivered  to  the 
inquirer  in  shorter  time,  i.e.,  convenience,  particularly 
where  free  access  to  shelves  is  allowed. 

2.  That  as  law  text  books  are  always  somebody's 
treatise  on  something  they  invite  the  author  arrange- 
ment, i.e.,  naturalness. 

They  claim  that  a  classified  system  is  objectionable 
because : 

1.  You  cannot  place  a  book  on  two  subjects  in  two 
places. 

2      Attendants  must  be  educated  to  the  classification. 

3.  It  is  unnecessary  where  a  subject  catalogue  is 
used. 

4.  Where  the  arrangement  is  alphabetical  by  sub- 
jects confusion  will  result  because  different  people  will 
call  the  same  subject  by  different  names. 

The  most  strenuous  advocate  of  classification  in  law 
libraries  is  Mr.  Wire  of  the  Worcester  County  (Massa- 
chusetts) Law  Library.  He  names  the  following  advan- 
tages of  such  a  system : 

L     It  keeps  books  on  one  subject  together. 

2.  It  keeps  editions  of  one  author  together.  (So 
should  an  author  arrangement.) 


Municipal  Reference  Libraries  49 

3.  It  answers  ninety-five  per  cent  of  calls  for  books 
by  showing  what  books  you  have  on  a  given  sul^ject." 

4.  It  makes  it  unnecessary  for  one  person  to  keep  in 
his  own  mind  what  books  there  are  on  a  particular  sub- 
ject. 

5.  It  puts  law  libraries  in  line  with  other  libraries 
from  the  standpoint  of  scientific  progress. 

Mr.  Wire  regards  it  as  a  scientific  necessity. 

The  gist  of  the  matter  was  intimated  above.  The 
books  in  law  libraries  naturally  fall  into  a  few  well 
defined  groups,  or  classes,  and  no  notation  is  needed  to 
show  into  which  group  a  given  book  falls  except  in  occa- 
sional instances.  In  actual  practice  text  books  are  more 
often  arranged  alphabetically  by  authors  than  by  a 
system  of  classification.  Although  there  are  some 
advantages  to  a  classified  arrangement  of  text  books, 
a  good  subject  catalogue  so  supplements  the  author 
arrangement  that  classification  is  not  essential.  Both 
methods  can  be  made  to  work  well  with  good  catalogues 
as  guides,  but  the  author  arrangement  is  preferred  by 
the  majority.^* 

It  should  be  noted  that  the  arrangement  of  topics  in 
the  discussion  of  the  materials  in  a  law  library  presented 
in  this  text  is  an  arrangement  of  materials  for  the  pur- 
pose of  discussion,  not  an  arrangement  made  with  a 
view  to  proposing  a  method  of  actually  grouping  and 
shelving  the  concrete  materials  themselves.  This  ar- 
rangement of  topics,  however,  may  suggest  a  grouping  of 
materials  somewhat  similar. 

"  This  high  percentage  would  hold  good  in  very  few  libraries. 

"On  this  subject  of  classification  consult  V\^  J.  C.  Berry,  "Law 
Classification  Under  the  Author  Arrangement."  A.  L.  A.  Bui.  v.  1: 
p.  257-58  and  G.  E.  Wire,  "Subject  Classification  of  Text  Books." 
A.  L.  A.  Bui.  V.  1 :  p.  258-60. 


50  Law,  Legislative  Reference  and 

A  recent  and  satisfactory'  system  of  classification  for 
large  law  libraries  is  illustrated  by  the  one  adopted  in  the 
Law  Division  of  the  new  New  York  State  Library  given 
below. 

Law  Classification. 

(New  York  State  Law  Librar>'.) 

L     Court  reports,  including  digests,  tables  of  cases, 
and  citation  books,  grouped  as  follows: 

1.  American,  arranged   alphabetically  by  states, 
(a)  The  West  Publishing  Company  System. 

2.  English,    Irish,  and   Scotch,   in  one  collection, 

arranged  alphabetically  by  method  of  citation. 

3.  Canadian,  first  the  Dominion,  followed  by  the 

provinces  in  alphabetical  order. 

4.  British    colonies    and    possessions    other    than 

Canada. 
(This  collection   is  at   present   small,   and   the   final    shelf 
arrangement   has   not   yet   been   worked   out.     It   will   prob- 
ably be  arranged  in  the  same  order  as  the  British  colonies  and 
possessions  are  grouped  in  the  "Colonial  list.") 

5.  Series  (generally  annotated) :  (a)  of  selected  cases 

on  all  topics,  and  (b)  of  selected  cases  on 
certain  topics. 

II.     Collections  of  records  and  briefs  in  the  following 
courts: 

1.  Supreme  Court  of  the  United  States. 

2.  New  York  Court  of  Appeals. 

3.  Appellate  Divisions  of  the  New  York  Supreme 

Court. 

4.  Inferior  New  York  appellate  courts. 

III.  Statute  law. 

These  fall  into  the  same  groups  as  are  given  above  for  the 
court  reports,  except  that  for  this  country,  simply  for  the  sake 
of  convenience,  the  latest  compilation  or  revision  and  suc- 
ceeding session  laws  for  each  state  are  shelved  together  as  a 
separate  collection. 

IV.  City  charters  and   ordinances,   arranged   alpha- 

beticallv  bv  cities. 


Municipal  Reference  Libraries  51 

V.     The  journals,   debates,   addresses,   etc.,   of  con- 
stitutional conventions,  including  the  constitu- 
tions proposed  by  them. 
VI.     Legal  periodicals. 
VI L     Publications  of  legal  societies. 
VIII.     Trials. 
IX.     General  collection. 

The  bulk  of  this  collection  consists  of  text  books,  encyclo- 
pedias, dictionaries,  and,  in  general,  works  not  falling  definitely 
into  I  to  VIII  above,  arranged  alphabetically  by  author, 
editor,  or  title.  From  time  to  time  certain  books  on  the  same 
subject  will  be  taken  from  this  section  and  a  separate  classifi- 
cation established  for  them.  Section  X  represents  one  such 
separation  which  has  already  been  made. 

X.     "The  literature  of  the  law." 

Legal  history,  biography,  essays,  bibliography. 

(c)     Cataloguing. 

Law  libraries  are  coming  more  and  more  to  regard  the 
dictionary  card  catalogue  not  only  as  well  adapted  to  their 
needs,  but  as  a  real  necessity.  The  Law  Division  of  the 
Library  of  Congress  is  printing  cards  for  the  books  in 
its  collection  and  these  may  be  purchased  by  other 
libraries.  The  debated  question  as  to  whether  a  printed 
book  catalogue  is  to  be  preferred  to  a  card  catalogue  will 
not  be  discussed  here  further  than  to  say  that  the  card 
catalogue  should  come  first,  then,  if  resources  are  available 
have  a  printed  catalogue  also.  Its  usefulness  will  be 
great,  reaching  far  beyond  the  four  walls  of  the  library  it 
catalogues,  as  is  illustrated  by  the  printed  catalogue  of 
the  Harvard  Law  School  Library. 

By  a  dictionary  catalogue  is  meant  a  catalogue  in  which 
books  will  be  found  listed  under  the  author,  under  the 
subject,  and  when  deemed  necessary,  under  the  title 
also.  The  cards  are  then  filed  in  alphabetical  order, 
author,  subject,  and  title  cards  in  one  alphabet,  just  as 
the  words  are  arranged  in  a  dictionary.     Some  libraries 


52  Law,  Legislativ^e  Reference  and 

may  prefer  to  file  all  author  and  title  cards  in  one  alphabet 
and  the  subject  cards  in  another  just  as  a  matter  of 
physical  convenience  in  using  the  catalogue. 

There  is  a  deal  of  material  on  the  subject  of  cataloguing 
books  in  professional  library  literature  and  information 
on  the  general  subject  need  not  be  repeated  in  this 
instance.  Law  library  cataloguing  is,  however,  a  difficult 
branch  of  the  general  subject  and  has  its  special  rules. 
Aids  to  cataloguers  in  determining  correct  author  entries 
are  the  A.  L.  A.  "Code,"  the  printed  cards  of  the  Library 
of  Congress,  the  printed  catalogues  of  law  libraries," 
especially  the  Harvard  University  Law  School  Library 
Catalog,  and  legal  bibliographies.^^ 

Aids  in  assigning  subject  headings  are  less  numerous 
and  the  matter  is  less  settled  than  the  question  of  author 
entry.  Considerable  assistance  may  be  received  from 
the  increasing  number  of  printed  cards  of  the  Library  of 
Congress  which  note  the  subject  headings  there  used  and 
especially  from  Hupper's  tentative  list  of  these  subject 
headings."  It  is  hoped  during  the  coming  year  to  sup- 
plant this  "tentative  list"  by  a  definitive  list  of  subject 
headings  and  cross  references  for  law  library  catalogues 
which  will  be  the  result  of  experience  in  the  Library  of 
Congress  with  the  tentative  list  and  of  co-operation  with 
a  special  committee  appointed  by  the  American  Associa- 
tion of  Law  Libraries.  Printed  catalogues,  indexes  to 
legal  publications,  the  standard  headings  of  the  West  Pub- 

"See  p.  40-41,  supra. 

'*  See  p.  37-40,  supra. 

"  R.  H.  H upper,  Tentative  Headings  and  Cross-references  for  a 
Subject  Catalogue  of  American  atid  English  Law.  Wash.  Gov't.  Ptg. 
Office.     1911. 


Municipal  Reference  Libraries  53 

lishing  Company's  Digests, ^^  and  the  volume  of  headings  ^' 
and  sub-heads  used  in  compiling  the  Index  Analysis  of 
the  Federal  Statutes,  and  particularly  this  Index  Analysis  ™ 
itself  will  all  prove  of  value  at  one  time  or  another. 
The  A.  L.  A.  Subject-headings  will  be  suggestive  in  some 
cases. 

As  more  and  more  law  libraries  are  coming  to  feel  the 
need  of  a  card  catalogue  to  their  collections  they  meet 
the  problem  of  whether  or  not  the  printed  cards  of  the 
Law  Division  of  the  Library  of  Congress  should  be  used 
wherever  available.  The  objection  has  been  raised  that 
there  is  too  much  information  furnished  on  these  cards, 
with  the  result  that  users  of  them  who  are  not  librarians 
become  confused  and  unable  to  find  what  they  are 
after.  The  same  criticism  has  come  from  public  libra- 
ries in  certain  instances  also. 

While  this  result  must  be  admitted  as  true  in  many 
cases,  still  the  writer  favors  the  use  of  these  printed 
cards.     The  objection  can  be  overcome  by  providing,  in 

^^  West  Publishing  Co.,  ^Iwimcan  Digest  main  Heads  and  Subdivi- 
sions of  Classification  Scheme ;  a  logical  A  nalysis  of  the  Law  for  the 
use  of  Indexers  and  Digest  Makers  comprising  an  Explanation  of  the 
Scheme,  the  Digest  Headings  with  their  main  Divisions  and  Sub- 
divisions, and  Scope-notes.     Ed.  4.     130  p.     St.  Paul.     1904. 

The  "Scope-notes"  defining  headings  will  be  particularly  valuable 
to  the  cataloguer  untrained  in  the  law. 

Brief  definitions  of  the  more  general  legal  terms  will  be  found  also 
in  Brief  Making  (supra),  p.  303-433  (Appx.  I.  "Main  Heads  of  the 
Law  Defined"). 

^'U.  S.-Library  of  Congress-Law  Division.  Headings  and  Sub- 
headings for  the  Index  to  the  Federal  Statutes.     Wash.  1906. 

^G.  W.  Scott  and  M.  G.  Beaman.  Index  Analysis  of  the  Federal 
Statutes  .  .  .  V.  1,  1873-1907  .  .  .  General  and  Permanent  Law  in 
the  Revised  Statutes  of  1873  and  the  Statutes  at  Large,  1873-1907, 
{vols.  18-34).     Wash.  1908. 

M.  G.  Beaman  and  A.  K.  McNamara.  Index  Analysis  of  the 
Federal  Statutes  {General  and  Permanent  Law),  1789-1873.  \Vash. 
1911. 


54  Law,  Legislative  Reference  and 

addition  to  these  full  entry  cards  demanded  by  exact 
bibliography,  "short  title"  cards  and  others  bearing  the 
popular  citation  or  catch  title  and  omitting  most  of  the 
detailed  bibliographical  information  found  on  the  printed 
cards.  Such  cards  as  these  might  file  in  the  regular 
catalogue  or,  for  convenience,  might  form  a  separate  so- 
called  "short  title"  or  "citation"  catalogue. 

If  the  law  library  keeps  a  file  of  the  briefs  of  counsel, 
that  is,  the  arguments  of  attorneys  and  other  printed 
papers  in  Supreme  or  Appellate  Court  cases,  a  card  index 
or  catalogue  by  the  title  of  the  case  is  essential,  unless 
these  briefs  are  bound  into  volumes,  numbered  and 
paged  to  correspond  to  the  printed  volumes  of  the 
reported  decisions.^^ 

(d)    Shelf-arrangement. 

No  hard  and  fast  rules  can  be  laid  down  for  the  exact 
arrangement  of  all  the  material  to  be  shelved  in  a  law 
library.  There  are  certain  generally  accepted  methods 
of  arranging  some  of  the  larger  groups  of  this  material 
which  may  be  mentioned. 

Taking  up  first  the  legal  publications  of  the  various 
states  of  the  United  States  it  may  be  said  that  the 
arrangement  preferred  considers  the  state  as  unit  and 
not  the  form  of  pul)lication  to  be  handled.  The  result- 
ing arrangement  is  that  the  session  laws,  revised  statutes, 
codes,  etc.,  court  reports,  digests,  and  local  treatises  of 
one  state  are  shelved  together  in  that  order  and  that 
the  collections  of  state  material  thus  formed  are  shelved 
alphabetically  by  states. 

*'  On  cataloguing  in  a  law  library-,  see  further  E.  D.  Adams,  "Con- 
structing a  Catalogue,"  Latt^  Library  Journal,  v.  3:  p.  35-38;  J.  O. 
Emtrich,  "Recent  Experiments  in  Cataloguing  the  Alleghany 
County  Law  Library,"!,. L.  /.  v.  3:  p.  41-44. 


Municipal  Reference  Libraries  55 

Another  plan  is  based  on  the  form  of  the  material  as 
the  unit  and  for  the  more  important  groups  would  result 
in  the  following  arrangement: 

1.     Court  Reports: 

I.  State. 

(a)  Arrange  all  state  reports  alphabetically  by 
states;  then  in  numerical  order  when  num- 
bered, or  chronologically  if  not  numbered. 

(b)  In  states  where  the  reports  are  better 
known  by  the  name  of  the  reporter  editing 
them,  especially  for  the  earlier  years,  the 
sub-arrangement  under  state  may  be  alpha- 
betically by  the  common  way  of  citing  them, 
i.e.,  by  the  reporters'  names.  In  the  case 
of  New  York  State  they  would  be  arranged 
as  Barbour,  Cowan,  Hill,  Johnson,  Taylor, 
Wendell.  In  Massachusetts  as  Gray,  Pick- 
ering, etc. 

This  latter  method,  however,  is  becoming  less  necessary 
and  less  used  because  the  states  are  in  many  instances 
going  back  and  assigning  numbers  to  the  volumes  of 
the  earlier  reports  heretofore  known  by  the  reporter's 
name.®^ 

II.  Other  Court  Reports. 
(a)  English. 

The  reports  of  the  English  courts  before  1865  are  all 
known  by  the  (unofficial)  reporters'  names  and  should 
be  arranged  alphabetically  by  them.  Since  1865  they 
have  been  numbered  in  series,  each  series  being  known 
by  the  name  of  the  court  whose  decisions  it  reports. 
The  suggested  arrangement  would  be  alphabetically  by 
series  and  within  each  series  numerically. 

^'^  See  p.  15,  supra. 


56  Law,  Legislative  Reference  and 

(b)  FederaL 

The  reports  of  United  States  federal  courts  may  pre- 
cede those  of  the  separate  states  with  the  United  States 
Supreme  Court  Reports  arranged  chronologically  or 
numerically,  and  the  circuit  and  all  other  reports  arranged 
alphabetically  by  the  reporters'  names.  Or,  this  group 
may  take  its  alphabetical  place  under  the  "U"  in  the 
general  group  of  state  reports. 

(c)  Special  Series. 

Special  series  have  no  exact  place  that  can  be  definitely 
assigned  in  a  general  and  merely  suggestive  scheme  such 
as  this.  They  would  naturally  be  shelved  a  little  apart 
from  but  convenient  to  other  reports. 

Inferior  courts  which  must  receive  slight  attention 
in  this  introductory  work,  including  circuit,  probate, 
and  other  courts,  in  many  instances  print  volumes  of 
decisions  which  must  be  shelved  with  due  regard  to 
other  such  material.  Obviously,  the  way  to  learn  how 
best  to  arrange  a  law  library  in  detail  is  not  to  read  how 
in  a  book  but  to  go  into  one  already  well  arranged  and 
get  the  benefit  of  the  visual  impression. 

2.     Briefs  of  Counsel. 

The  make-up  of  these  volumes  composed  of  the 
printed  papers  filed  before  courts  will  determine  the 
method  of  shelv^ing  within  the  series.  Within  a  set 
volumes  will  be  arranged  numerically  either  by  a  con- 
secutive number  arbitrarily  assigned,  or,  if  bound  and 
paged  to  correspond  with  the  volumes  of  printed  reports, 
in  the  same  order  that  the  reports  themselves  have  been 
given.  Briefs  of  counsel  should  be  shelved  together 
in  sets  even  when  the  papers  making  up  the  individual 


Municipal  Reference  Libraries  57 

volumes  are  arranged  and  paged  corresponding  to  the 
volume  of  reports  which  they  supplement. 

3.  Trials. 

The  volumes  in  a  separate  group  of  collected  trials 
would  be  arranged  alphabetically  by  the  compiler  or 
editor  of  the  collection  or,  by  the  title  if  usually  so  cited. 
Individual  trials,  like  individual  biography,  should  be 
arranged  alphabetically  by  the  names  of  the  individual. 

4.  Statute  Law. 

The  arrangement  of  laws  themselves  present  certain 
difficulties.  The  latest  compilation  or  revision  with  the 
session  laws  down  to  date  for  all  the  states  should  be 
readily  accessible  on  open  shelves.  Laws  may  be  placed 
alphabetically  by  states  and  chronologically  within  each 
state  group.  Sets  of  session  laws  are  often  separated 
from  codes,  revisions,  and  compilations. 

5.  Text-Books. 

As  previously  noted,  text-books  will  be  arranged  alpha- 
betically by  authors  as  a  rule,  though  they  may  be  classi- 
fied and  then  arranged  by  authors.  When  classified  an 
alphabetical  arrangement  of  subjects  may  be  adopted  or 
some  other  arbitrary  grouping. 

6.  Periodicals. 

These  are  usually  arranged  alphabetically  by  titles. 
A  larger  division  by  the  language  in  which  printed  may 
be  desirable  in  the  largest  libraries.  Some  periodicals 
which  are  nothing  but  advance  sheets  of  court  reports  may 
be  shelved  with  the  reports. 

7.  A  separate  group  of  bar  associations'  reports 
would  arrange  alphabetically  by  the  name  of  the  asso- 
ciation and  chronologically  within  each  group. 


58  Law,  Legislative  Reference  and 

8.     Legal  Miscellany. 

Of  the  "legal  miscellany,"  so-called,  bibliographies 
and  catalogues  of  libraries  and  dealers  would  naturally 
be  placed  in  the  librarian's  office  arranged  by  author  and 
dealer. 

There  should  be  separate  collections  of  biography, 
collective  and  individual. 

The  term  text-book  may  be  interpreted  broadly  enough 
to  permit  the  shelving  within  that  collection  of  all  mis- 
cellaneous material  not  obviously  falling  into  some  other 
definite  class. ^^ 

(e)     Loans. 

Loaning  books  from  a  law  library  is  often  prohibited 
by  some  rule  of  the  governing  board.  More  often  the 
privilege  is  restricted  to  judges,  state  or  local  officers,  and 
specially  privileged  persons.  The  regulations  governing 
the  loaning  of  books  will  depend  on  whether  the  library 
is  an  adjunct  of  a  court  or  has  some  official  relations. 

Generally  speaking,  restricted  circulation  is  feasible 
where  the  librarian  has  the  right  to  recall  a  book  when 
needed.  Certain  books,  like  the  local  statutes,  reports, 
and  other  material  likely  to  be  called  for  at  any  moment 
by  a  court  or  others  cannot  be  loaned,  at  least  not  out- 
side the  building  the  library  is  in. 

The  loan  record  should  be  simple,  an  author  record  and 
usually  a  borrower's  record,  as  attorneys  and  state 
officers  will  often  ask  what  books  are  charged  to  them 
and  expect  an  immediate  and  complete  answer.  Such  a 
list  is  also  a  convenience  in  recalling  loans.     It  is  well  to 

"See  further  L.  H.  Sage,  "Arrangement  of  Law  Books,"  inA.  L.  A. 
Bui.  V.  2:  p.  296-98.  Sept.  1908;  summary  in  Library  Work.  Jan. 
1909,  p.  191. 


Municipal  Reference  Libraries  59 

file  the  slips  noting  the  author  and  title  of  books  loaned 
by  the  date  taken  if  there  is  a  fine  system  applicable  to 
overdue  books. 

Patrons  of  a  law  library  are  more  strict  than  others  in 
demanding  a  receipt  for  books  returned  —  a  characteristic 
which  others  could  well  copy. 

(f)     Citing  Law  Books  and  Legal  Abbrevia- 
tions. 

Law  publications  are  cited  in  great  numbers  in  all 
legal  writing  and  almost  always  by  short  abbreviations. 
Many  of  these  become  familiar  by  reason  of  their  fre- 
quent appearance,  but  the  novice  must  know  where 
they  are  explained  and  some  of  the  abbreviations  met 
are  unintelligible  both  to  the  legal  bibliophile  and  the 
seasoned  practitioner  of  the  law.  Too  many  sources 
wherein  these  are  explained  cannot  be  known  by  the  law 
librarian. 

Contrary  to  the  usual  custom  elsewhere  the  volume 
number  is  given  first  in  citing  court  reports;  then  the 
name  of  the  reporter  or  the  state  or  jurisdiction  issuing 
the  report,  and  last  the  paging.  Thus,  10  Johnson  246; 
11  Mass.  81;  33  111.  78;  signifying  volume  10  of  John- 
son's New  York  Reports,  volume  11  of  the  Massachusetts 
Reports,  and  volume  33  of  the  Illinois  Reports.  Laws  are 
cited  similarly. 

The  following  is  a  brief  list  of  books  in  which  explana- 
tions of  legal  abbreviations  will  be  found.  A  much 
longer  list  appears  in  Frederick  C.  Hicks'  Aids  to  the  Study 
and  Use  of  Law  Books,  1913. 

1.  Amer.  &'  Eng.  Cyc.  of  Law.   Ed.  2.    v.   1,  p. 

102-161. 

2.  Black,  H.  C:  Law  Dictionary.     Ed.  2.     1910. 

p.  1235-1314. 


60  Law,  Legislative  Reference  and 

3.  Bouvier,    John:    Law   Dictionary.     New   ed. 

Bost.,  1897.     p.  9-50. 

4.  Brief  Making  and  the  Use  ofLawBooks.     Ed.  2. 

1909.  p.  435-557. 

5.  Decennial   Digest,     v.    21,   p.   vii-xvi.     (Pre- 

ceding the  table  of  cases). 

6.  T.  H.  Flood  &  Co.:    Catalogue  of  Law  Books. 

1910.  p.  166-196. 

7.  Ohio  Supreme  Court  Law  Library  Catalogue. 

1910. 

8.  Soule,    C.    C:    Lawyers'   Reference  Manual. 

1883.     p.  345-497. 

9.  Sweet  &  Maxwell's  Lawyers'  Reference  Book. 

1907.     p.  32-57. 
10.     U.  S.  Dept.   of   Justice    Catalog.      1904.      p. 
v-xlvii. 

4.    Legal  Works  in  a  General  Library. 

(a)  Nature  of  the  Usual  Inquiry. 

The  inquirer  in  a  law  library  usually  wants  a  definite 
book  or  has  a  definite  situation  in  mind  and  wishes  to 
know  the  law  as  applicable  to  this  situation.  So  it 
may  be  with  the  inquirer  seeking  legal  information  in 
the  general  library,  but,  in  this  latter  case,  it  is  perhaps 
more  often  a  general  knowledge  of  legal  principles  from 
a  cultural  or  philosophical  point  of  view  rather  than  a 
practical  knowledge  of  the  law  as  applied  to  a  given  set 
of  facts  that  will  be  sought. 

(b)  Types  of  Books  and  Periodicals  Needed. 
It  is  therefore  a  debatable  question  whether  the  pub- 
lic library  should  make  any  attempt  to  secure  the  tech- 
nical legal  treatises  which  are  the  every-day  tools  of  the 
practicing  lawyer  and  the  text-books  of  the  student  of 
law.  Factors  in  determining  local  policy  in  this  regard 
will  be  the  availabilitv  of  such  works  elsewhere  in  the 


Municipal  Reference  Libraries  61 

community,  the  size  of  the  public  library,  its  book- 
purchasing  budget,  and  the  local  demand  for  legal  text- 
books in  the  public  library.  A  policy  justified  in  one 
place  may  not  be  justified  in  another. 

The  A.  L.  A.  Catalog  1904,  and  the  ^.  L.  vl.  Catalog 
1904-1911  will  be  found  exceedingly  helpful  in  making 
a  selection  of  the  politico-legal  works  definitely  suited 
to  the  needs  of  the  public  library.  The  sections  par- 
ticularly referred  to  are  those  on  Law  (classes  340-347), 
Administration  (350-354),  and  certain  divisions  of  the 
Political  Science  section  (classes  320-329),  such  as 
Suffrage  (324),  Legislative  Bodies  (328),  and  Political 
Parties  (329).  The  reviews  and  notices  in  legal  and 
political  science  journals  as  well  as  the  A.  L.  A.  Booklist 
will  serve  as  useful  guides  in  making  additions. 

Three  recent  series  of  legal  publications  may  receive 
special  mention  in  this  connection,  being  suited  to  the 
needs  certainly  of  the  large  public  libraries.  They  are 
The  Continental  Legal  History  Series  translated  and  pub- 
lished under  the  auspices  of  the  Association  of  American 
Law  Schools, ^^  The  Modern  Legal  Philosophy  Series, 
under  the  same  auspices, ^^  and  The  Modern  Criminal 
Science  Series,  translated  and  published  under  the  aus- 
pices of  the  American  Institute  of  CriminalLaw  and 
Criminology.^^  These  three  series,  each  of  which  attempts 
to  put  into  the  hands  of  English  readers  the  most  authori- 
tative works  in  the  field  selected,  will  occupy,  when  com- 
pleted, a  unique  and  enviable  position  in  the  historical 
literature  of  jurisprudence,  the  philosophy  of  law,  and 
modern     criminology.       The    following    lists    of    titles 

"  Pub.  by  Little,  Brown  &  Co.,  Boston,  1912 . 

•^  Pub.  by  The  Boston  Book  Co.,  Boston,  1912 . 

««  Pub.  by  Little,  Brown  &  Co.,  Boston.  1911 . 


62  Law,  Legislative  Reference  and 

included  indicate  the  scope  of  these  enterprises  and  the 
weight  of  authority  represented  in  both  authors  and 
translators. 

The  Continental  Legal  History  Series: 

Bar,  Ludwig  von. 

Historv    of    Continental    Criminal    Law,    tr     by 
Thos.  S.'Bell.     1913.     (v.  6.) 
Brissaud,  Jean. 

History  of  French  Private  Law,  tr.  by  Rapelje 
Howell.     1912.     (v.  3.) 

History  of  French  Public  Law,  tr.  bv  James  W. 

Garner.     (Ready  in  1914.)     (v.  9.) 
Calisse,  Carlo. 

History  of  Italian  Law,  tr.  bv  John  Lisle.    (Ready 
in  1915.)     (v.  8.) 
Engelmann,  Arthur. 

History  of  Continental  Civil  Procedure,  with  a 
chapter  by  E.  Glasson,  tr.  by  Robert  W.  Millar. 
(Ready  in  1914.)     (v.  7.) 
Esmein,  A. 

History  of  Continental  Criminal  Procedure,  with 
chapters  by  Francois  Garraud  and  C.  J.  A.  Mitter- 
maier,  tr.  by  John  Simpson.     1913.     (v.  5.) 
Hijbner,  Rudolf. 

Historv  of  Germanic  Private  Law,  tr.  by  Francis 
S.  Philbrick.     (Ready  in  1914.)     (v.  4.) 
Huvelin,  Paul. 

History  of  Continental  Commercial  Law,  tr.  by 
Ernest  G.  Lorenzen.     (Ready  in  1915.)     (v.  10.) 
Manson,  Edward.,  ed. 

Great    Jurists   of    the   World    from    Papinian    to 
von  Ihering.     1912. 
Tarde,  Gabriel,  Raoul  de  la  Grasserie,  and  others. 

The  Evolution  of  Law  in  Europe,     (v.  11.) 
Wigmore,  John  H.,  ed. 

General  Survey  of  the  E\'ents,  Sources,  Persons, 
and  Movements  of  Continental  Legal  History. 
(Various  translators.)     1912.     (v.  1.) 


Municipal  Reference  Libraries  63 

The  Modern  Legal  Philosophy  Series: 
Berolzheimer,  Fritz. 

The    World's    Legal    Philosophies,    tr.    by    Mrs. 
R.  S.  Jastrow,  1912.     (v.  2.) 
Fouill6e,  A.,  and  others. 

Modern  French  Legal  Philosophy,  tr.  by  Joseph 
L.    Chamberlain    and    Mrs.    E.    F.    Scott.     1913. 
(v.  7.) 
Gareis,  Karl. 

The  Science  of   Law,    tr.   by   Albert   Kocourek. 

1911.  (v.  1.) 
Ihering,  Rudolf  von. 

Law  as  a  Means  to  an  End,  tr.  by  Isaac  Husik. 

1912.  (v.  5.) 
Kocourek,  Albert,  ed. 

Selected    Essays    in    Modern    Legal    Philosophy. 
(v.  9.) 
Kohler,  Josef. 

The  Philosophy  of  Law.     1912.     (v.  12.) 
Korkunov,  N.  M. 

General  Theory  of  Law,  tr.  by  W.  G.  Hastings. 
1909.     (v.  4.) 
Miraglia,  Luigi. 

Comparative  Legal  Philosophy,  tr.  by  John  Lisle. 
1912.     (v.  3.) 
Stammler,  Rudolf. 

The  Theory  of  Justice,  tr.  by  Frederic  S.  Spiegal. 
(v.  8.) 
Tourtoulon,  P.  de. 

Philosophy  in  the  Development  of  Law,  tr.  by 
Robert  L.  Henry,     (v.  13.) 
Vanni,  L 

The   Positive   Philosophy  of   Law,    tr.   by  John 
Lisle.     (Ready  in  1914.)     (v.  6.) 
Vecchio,  G.  del. 

The  formal  Basis  of  Law,  tr.  by  John  Lisle.    1913. 
(v.  10.) 
Wigmore,  John  H.,  ed. 

The  Scientific   Basis  of   Legal   Justice.     (To  be 
selected.)     (v.  11.) 


64  Law,  Legislative  Reference  and 

The  Modern  Crinmial  Science  Series: 

Aschafifenburg,  Gusta\ . 

Crime  and  its  Repression,  tr.  by  Adalbert  Albrecht. 
(V.  9.) 
Bernaldo  de  Quiros,  C. 

Modern  Theories  of  Criminality,  tr.  by  Alphonso 
deSalvio.     191L     (v.  L) 
Bonger,  W.  A. 

Criminality    and    Economic    Conditions,    tr.    by 
Henry  P.  Horton.     (v.  7.) 
Ferri,  Enrico. 

Criminal    Sociology,    tr.    by    Joseph    L    Kelley. 
(V.  5.) 
Garofalo,  Raflfaelle. 

Criminology,  tr.  by  Robert  W.  Millar,    (v.  8.) 
Gross,  Hans. 

Criminal   Psychology,  tr.  bv  Horace  M.  Kallen. 
IQIL     (v.  2.)  ' 
Lombroso,  Cesare. 

Crime,  its  Causes  and  Remedies,  tr.  by  Henry  P. 
Horton.     (y.  3.) 
Saleilles,  Raymond. 

The  Indiyidualization  of  Punishment,  tr.  by  Mrs. 
R.  S.  Jastrow.    191L    (v.  4.) 
Tarde,  Gabriel. 

Penal  Philosophy,  tr.  by  Rapelje  Howell.  1912. 
(v.  6.) 
There  is  a  legitimate  doubt  as  to  the  wisdom  of 
attempting  a  list  of  legal  periodicals  appropriate  as  a 
first  choice  for  either  the  small  law  library  or  the  general 
public  library.  Opinions  naturally  differ  and  between 
certain  periodicals  of  the  first  class  no  choice  can  prop- 
erh'  be  made  on  a  merit  basis,  limited  resources  only 
making  selection  a  necessity.  Among  the  most  desir- 
able journals  would  be  classed  the  American  Journal  of 
International  Law,  the  American  Law  Review,  Central  Law 
Journal,    Columbia   Law    Review,   Green   Bag,    Harvard 


Municipal  Reference  Libraries  65 

Law  Review,  the  Journal  of  Criminal  Law  and  Criminol- 
ogy and,  in  every  case,  the  local  state  law  review. 
Journals  relating  to  the  legal  side  of  certain  lines  of 
business  may  properly  find  their  way  into  the  general 
reading-rooms  of  the  larger  public  libraries,  such  as,  for 
instance,  the  Insurance  Law  Journal. 

Putting  aside  the  question  of  how  desirable  legal  text- 
books or  periodicals  may  be  in  the  public  library,  it  can 
be  stated  definitely  that  each  such  library  owes  it  to  its 
clientele  to  have  on  hand  the  federal  and  state  laws  in 
force  to  date,  including  the  latest  compilation  or  revision 
with  subsequent  session  laws,  and  the  latest  compilation 
of  local  ordinances  with  the  later  action  of  the  city 
council  shown  by  annual  volumes  and  advance  sheets  of 
council  proceedings,  minutes,  or  acts  in  whatever  form 
published.  For  the  United  States  as  a  whole  this 
would  mean  the  presence  of  the  Compiled  Statutes  or 
the  Federal  Statutes  Annotated,  with  supplements,  the 
subsequent  Statutes  at  Large,  Session  Laws,  and  when 
possible,  the  slip  laws. 


66  Law,  Legislative  Reference  and 

CHAPTER    IL 
LEGISLATIVE   REFERENCE   WORK. 
Topical  Outline. 

1.  Origin  and  Development. 

(a)  The  Problem  of  Intelligent  Legislation. 

(b)  The  Legislative  Reference  Bureau  one 

Factor  in  its  Solution. 

(c)  The    Origin   and    Development   of   the 

Legislative  Reference  Movement. 

2.  The  Materials. 

(a)     Legal  and  Documentary. 

L  Existing  Law  and  its  Judicial  Interpreta- 
tion: Constitutions,  treaties,  statutes, 
court  decisions. 

2.  Proposed  Law. 

Bills  and  constitutional  amendments. 

3.  Public  Documents, 
(a)     National. 

L     Bibliographical  Statement. 

2.  The  Congressional  Set  and   Illus- 

trative Documents. 

3.  Departmental     Publications    and 

Compilations  of  State  Laws  in 
Federal  Documents. 

4.  Indexes,  Check-lists,  and  Sources 

for  Current  Information, 

5.  Foreign  Documents. 
(b)     State. 

1.  Bibliographical  Statement. 

2.  Illustrative  Documents. 

3.  Indexes,  Check-lists  and  Sources  for 

Current  Information. 


Municipal  Reference  Libraries  67 

(c)     Municipal. 

4.  Parliamentary  Law  and  Precedents. 

5.  Brief  of  Counsel. 

(b)  Books. 

(c)  Serial  Publications. 

Periodicals,  society  proceedings,  etc. 

1.  General. 

2.  On  Comparative  Legislation. 

(d)  Miscellaneous  Pamphlets. 

(e)  Correspondence. 

(f)  Clippings. 

(g)  Bibliographical  Aids. 

Bibliographies,  indexes,  etc. 

3.  Handling  of  Material. 

(a)  Staff  Organization  and  the  Division  of 

Labor. 

(b)  Acquisition. 

L     Sources  to  be  watched  for  notices  of  new 

material. 
2.     Actual  Acquisition. 

(a)  Gift. 

(b)  Exchange. 

(c)  Purchase. 

(c)  Classification. 

(d)  Cataloguing. 

(e)  Shelving  and  Filing  Methods. 

4.  Preparing  for  a  Legislative  Session. 
(a)     Work  During  a  Session. 

L     Reference  Work. 

2.     Bill-drafting  and  Legislative  Procedure. 

5.  Qualifications  of  a  Legislative  Reference  Libra- 

rian and  Opportunities  for  Training. 

6.  Present  Success  and  Support. 

7.  Future  Possibilities,  Co-operation,  and  Exten- 

sion. 


68  Law,  Legislative  Reference  and 

LEGISLATIVE    REFERENCE   WORK. 
1.     Origin  and  Development. 

(a)    The  Problem  of  Intelligent  Legislation. 

Some  six  years  ago  a  series  of  discussions  at  the 
annual  meeting  of  the  American  Political  Science  Asso- 
ciation on  the  general  topic  The  Making  and  Revision  of 
Law  began  with  a  statement  of  the  "Problem  of  Intelli- 
gent Legislation  ^  "  by  Professor  Ernst  Freund  of  the 
University  of  Chicago.  Professor  Freund  stated  his  prob- 
lem as  follows : 

"Given  a  legislature  of  average  ability,  fairly  represent- 
ati\'e  in  character,  not  exempt  from  political  bias  or  pop- 
ular prejudice,  but  willing  on  the  whole  to  act  according 
to  the  best  of  its  lights,  such  a  legislature  as  we  now 
have,  and  shall  have  for  many  years  to  come:  how  can 
it  be  enabled  to  perform  its  task  more  creditably  and 
most  efficiently  ?" 

Realizing  that  this  question  has  always  engaged  the 
attention  of  legislative  bodies — "their  attention  far 
more  that  that  of  the  people  at  large"  —  he  inquires 
"Why,  after  a  hundred  years'  experience  and  experi- 
ments, a  satisfactory  solution  has  not  been  found,  and 
why  it  is  that  only  now  the  subject  is  beginning  to  arouse 
popular  attention  and  interest?" 

In  his  own  answer  to  this  question  he  points  out 
numerous  contributing  and  co-operative  causes,  to  which 
attention  may  be  called  with  profit  in  the  present  in- 
stance. After  inheriting  English  Common  Law,  English 
conser\^atism  toward  it  was  lacking;  in  practice  laws 
were  passed,  their  defects  in  opei  ation  observed ;  then  and 

'  American  Political  Science  Association  Proceedings,  4:  69-79. 
(1907.) 


Municipal  Reference  Libraries  69 

not  until  then  were  changes  proposed;  thus  too  little 
foresight  and  study  preceded  the  original  enactment 
of  laws.  Again,  industry  developed  enormously;  allied 
interests  combined;  employers  organized;  employees 
organized.  Powerful  agencies  to  resist  legal  regulation 
were  established. 

On  the  other  hand,  but  contributing  to  the  same 
result,  American  legislatures  lack  permanency  and  are 
made  up  largely  of  inexperienced  men,  men  who  are 
compelled  to  attempt  during  one  short  legislative  session 
to  render  expert  judgment  on  a  thousand  bills  involving 
a  far  greater  number  of  intricate,  complex,  and  technical 
subjects. 

In  the  progress  of  law-making  as  developed  in  this 
country  Professor  Freund  finds  three  prominent  defects 
which  the  legislatures  themselves  are  in  a  position  to 
remedy.  First,  there  is  a  lack  of  individual  responsibility 
upon  members.  They  may  introduce  any  number  of 
bills,  assuming  responsibility  for  neither  content  nor 
form.  His  several  remedies  suggested  for  this  first  defect 
include  a  limitation  on  the  number  of  bills  allowed  each 
member,  a  statement  of  the  interests  instigating  the 
introduction  of  a  measure,  the  presentation  of  an  ex- 
planatory memorandum  with  each  bill,  the  publication 
of  bills  before  introduction,  and  a  freer  exercise  of  the 
executive  veto  power. 

The  second  of  the  three  defects  is  the  lack  of  expert 
advice,  advice  both  as  to  content  of  legislation  —  that 
it  may  better  reflect  community  needs  in  the  light  of 
comparative  community  experience  —  and  advice  as 
to  the  correct  legal  form  of  the  proposed  laws.  Instead 
of  being  the  result  of  special  study  by  specially  trained 
experts,  legislation  too  often  reflects  vague  and  unnatural 


70  Law,  Legislative  Reference  and 

beliefs  and  popular  prejudices.  More  often  this  result 
has  been  due  to  the  lack  of  opportunity,  time,  and 
facilities  for  study  than  it  has  to  any  intentional  slighting 
of  obligations.  It  is  this  lack  of  opportunity,  time,  and 
facilities  that  can  and  should  be  remedied.  Further, 
errors  in  legal  form  arc  due  in  no  small  part  to  the  variety 
and  uncertainty  of  constitutional  limitations,  and  to  the 
absence  of  expert  draftsmen,  quite  as  much,  perhaps, 
as  they  are  due  to  a  failure  to  observe  known  rules  and 
to  the  use  of  ambiguous  phraseology.  Yet,  these  also 
are  preventable  causes  which  unfortunately  operate 
all  too  frequently  to  produce  undesirable  results.  The 
legislative  reference  library  was  first  created  and  the 
legislative  reference  movement  has  since  developed  as  a 
definite  though  partial  remedy  for  this  second  defect. 

(b)    The  Legislative  Reference  Library. 

The  main  purpose  of  legislative  reference  work,  is  then, 
the  improvement  of  legislation.  It  is  a  conscious  and 
conscientious  effort  to  furnish  at  least  one  of  the  essen- 
tially necessary  factors  in  a  correct  and  unbiased  solution 
of  the  problem  of  intelligent  legislation.  Legislative 
reference  work  seeks  to  provide  members  of  legislatures, 
state  officers,  and  those  of  the  public  at  large  interested 
in  law-making  with  the  data  of  existing  law  and  com- 
parative experience  to  the  end  that  legislation  may 
henceforth  represent  the  actual  needs  of  the  people  as 
made  known  through  careful  sur\'eys  of  social  and 
economic  conditions,  well  grounded  theories,  and  through 
the  adaptation  to  these  conditions  of  existing  law  to 
whatever  extent  comparative  experience  shows  it  to  be 
properly  adaptable. 

It  further  endeavors  to  improve  legislation  from  the 
standpoint   of  legal   form.     Laws  when  passed   should 


Municipal  Reference  Libraries  71 

conform  to  the  requirements  of  the  constitution  of  the 
state  and  of  the  nation,  and  should  be  free  from  technical, 
legal  inaccuracies,  containing,  however,  all  that  is  con- 
stitutionally and  legally  essential. 

The  third  defect  Professor  Freund  considers  under  the 
head  lack  of  principle.  By  principle  is  meant  "the 
permanent  and  non-partisan  policy  of  justice  in  legis- 
lation, the  observance  of  the  limits  of  the  obtainable, 
the  due  proportion  of  means  to  ends,  and  moderation  in 
the  exercise  of  powers  which  by  long  experience  has  been 
shown  to  be  wise  and  prudent,  though  it  may  be  tem- 
porarily inconvenient  or  disappointing  in  the  immediate 
results."  Constitutional  limitations  lay  down  certain 
principles  of  legislation;  but  alone  they  are  not  able  to 
accomplish  all  that  is  desired.  Voluntary  restraint  is 
politically  more  valuable  than  constitutional  restraint. 
In  legislation  which  concerns  important  economic  and 
social  interests,  the  general  principles  of  such  laws  are 
being  worked  out  with  some  care;  but  as  to  the  legal 
and  judicial  aspect  of  legislation  there  has  been  as  yet 
no  such  body  of  principles  established  in  a  scientific 
manner.  For  this  defect,  legislation  based  upon  expert 
advice  may  also  be  expected  in  the  course  of  time  to 
bring  some  remedies. 

Some  of  these  same  defects,  with  others  —  such  as  the 
lack  of  responsibility  of  political  parties,  the  lack  of 
uniformity  in  the  parliamentary  practice  of  the  several 
state  legislatures,  lobbying,  the  abuse  of  the  committee 
system,  and  so  on  —  have  received  adequate  exposition 
in  the  writings  of  numerous  other  students  of  govern- 
ment,   for   example,    Professors   Paul    S.  Reinsch,^  and 

^  Paul  S.  Reinsch,  American  Legislatures  and  Legislative  Methods, 
337  p.     N.  Y.  Century  Co.  1907.     (American  State  Series.) 


72  Law,  Legislative  Reference  and 

Chester  Lloyd  Jones.'  But  with  these  or  other  contribut- 
ing causes  which  combine  to  make  difficult  this  problem 
of  intelligent  legislation  the  present  text  has  no  further 
immediate  concern.  It  is  primarily  concerned  at  this 
point  with  the  part  the  legislative  reference  library  may 
play  in  supplying  the  second  shortcoming  of  the  three 
found  in  this  process  of  law-making,  namely,  the  lack 
of  expert  advice.  More  particularly,  the  main  purpose 
of  this  text  is  to  discuss  the  material  which  goes  into  such 
a  library,  its  content,  acquisition,  and  technical  treat- 
ment largely  with  a  view  to  making  known  sources  of 
information. 

Bill-drafting,  the  science  of  expressing  in  proper  lan- 
guage according  to  the  requirements  of  the  constitution 
and  the  law,  the  content  of  intended  legislation,  is,  how- 
ever, not  given  present  consideration  except  incidentally, 
law-making  from  the  standpoint  of  legal  form  being  the 
subject  of  other  treatises  to  which  reference  is  made  in 
due  course.^ 

(c)    Origin  and  Development  of  the  Legisla- 
tive ReferExNCE  Movement. 

When  and  where  it  first  became  apparent  that  there 
was  this  definite  "problem  of  intelligent  legislation" 
can  hardly  be  stated  with  any  degree  of  exactness.  State 
libraries  themselves  were  originally  created  with  a  view 
to  providing  a  reference  library,  mainly  legal,  for  the 
use  of  the  members  of  the  state  government,  including 
the  Executive,  the  administrative  officers,  and  the  mem- 
bers of  the  legislature.       The  modern  idea  of  library 

'  Chester  Llovd  Jones,  Statute  Law  Making  in  the  United  States, 
327  p.  Boston  Book  Co.  1912.  Cf.  further,  "Faults  in  State 
Legislation  and  Proposed  Remedies,"  in  Charles  A.  Beard's  American 
Government  and  Politics,  p.  540-46. 

*  See  appendix,  Inbliography  and  p.  17.5-8.5,  208-12,  infra. 


Municipal  Reference  Libraries  73 

service  did  not  really  develop,  however,  until  the  last 
quarter  of  the  nineteenth  century  and  even  then,  with 
one  or  two  notable  exceptions,  did  not  receive  an  enthu- 
siastic backing  from  state  libraries.  Except  in  the  case 
of  Massachusetts,  New  York,  and  perhaps  a  few  other 
states,  the  state  library  was  not  at  this  time  an  active 
agent  of  library  progress.  Library  work  was  poorly  done. 
Politics  exerted  too  great  an  influence  in  appointments; 
the  library  executive  was  too  frequently  not  in  sympathy 
with  his  work,  or  at  best  was  a  collector  lacking  the 
additional  qualifications  of  the  administrator.  Insuffi- 
cient appropriations  hampered  those  who  otherwise  could 
have  gone  ahead,  and  collections  of  books  and  documents 
remained  inadequate  and  uncatalogued. 

Though,  as  has  been  indicated,  the  possibilities  in  the 
situation  had  occurred  to  but  few  librarians,  at  least  one 
had  a  definite  appreciation  of  them.  This  was  made 
evident  by  the  appointment  by  Melvil  Dewey,  the 
Director  of  the  New  York  State  Library,  in  1890,  of  a 
legislative  reference  librarian,  to  be  exact,  a  legislative 
sub-librarian,  in  the  state  library  at  Albany.  By  this 
action  1890  became  the  date  when  the  movement  to 
establish  so-called  legislative  reference  libraries  and 
to  do  "legislative  reference  work"  as  a  partial  solution 
of  this  problem  of  intelligent  legislation  assumed  definite 
shape  and  first  received  formal  recognition.^ 

The  principal  task  allotted  to  the  first  appointee,  Mr. 
A.  B.  Shaw,  and  to  his  successors  for  a  number  of  years, 
was  the  preparation  and  publication  annually  of  a 
classified  summary  of  and  index  to  the  general  legislation 

*  Cf.  Robert  H.  Whitten,  "Two  Decades  of  Comparative  Legisla- 
tion" in  the  A.  L.  A.  Bui.  v.  3:  296-98;  an  extract  of  this  appears  in 
62d.  Cong.  1st  Sess.  S.  Document  7,  p.  6,  also  in  62d  Cong.  3d 
Sess.  S.  Report  1271,  p.  40. 


74  Law,  Legislative  Reference  and 

of  the  several  states,  a  piece  of  work  since  enlarged  in 
scope  but  which  from  the  beginning  has  held  first  place 
as  a  tool  in  the  study  of  comparative  state  legislation. 

Wisconsin  followed  eleven  years  later  developing  new 
methods  and  new  ideas  with  rapidity  and  success,  the 
credit  for  which  belongs  to  Dr.  Charles  McCarthy,  still 
at  the  head  of  the  enterprising  and  progressive  depart- 
ment in  that  state. 

Since  then  thirty-two  additional  states  have  under- 
taken this  work  on  varying  scales.®  Some  have  followed 
New  York  and  have  created  a  legislative  reference  divi- 
sion in  the  state  library  under  what  may  perhaps  be 
termed  the  doctrine  of  implied  powers,  that  is,  without 
special  legislation.  These  are  California,  Connecticut, 
Iowa,  Kansas,  Massachusetts,  Montana,  Oregon,  and 
Washington.  By  specific  legislation  other  states  have 
created  a  division  in  the  state  library  for  doing  this  work, 
as  is  instanced  by  New  Hampshire,  Michigan,  Rhode 
Island,  South  Dakota,  Texas,  and  Vermont.'^ 

A  return  to  the  original  idea  underlying  the  establishing 
of  state  libraries,  or  perhaps  it  should  be  called  a  new 
emphasis  on  this  idea,  is  seen  in  the  change  which  was 
made  in  the  California  State  Library  after  a  few  years  of 
experimenting  with  a  separate  legislative  reference 
di\ision.  In  May,  1913,  their  attitude  was  expressed 
in  the  following  language: 

"Two  years  ago  we  abolished  the  legislative  reference 
department  as  such,  because  we  have  found  that  such  a 
department  attempting  to  gather  material  on  subjects 
which  may  come  up  for  legislation  must  necessarily  dupli- 
cate much  of  the  material  contained  in  a  library  the  size 

•  See  Apx.,  p.  ;i84-S.5. 

'  Sjee  Apx.,  p.  347-79,  for  texts  of  laws. 


Municipal  Reference  Libraries  75 

of  this  one.  Our  idea  is  that  a  large  library  is  essential 
to  any  sort  of  reference  work.  We  have  a  legislative 
reference  librarian,  it  is  true,  but  during  the  sessions  of 
the  legislature  the  whole  staff  of  the  state  library  may 
and  as  a  matter  of  fact  is  put  upon  phases  of  legislative 
reference  work. 

During  the  session  of  the  legislature  which  has  just 
closed,  we  had  opportunity  to  try  out  this  plan.  This 
session  was  the  longest  in  the  history  of  the  state,  more 
bills  were  introduced  and  more  were  finally  passed  than 
ever  before.  The  state  library  was  called  upon  for 
greater  service  than  ever.  We  feel  highly  pleased  with 
the  record  which  the  library  made  during  this  session, 
and  are  more  thoroughly  convinced  that  legislative  refer- 
ence work  can  be  carried  on  more  satisfactorily  through 
the  library  as  a  whole  than  it  can  through  a  separate 
department." 

In  this  connection  it  should  be  said  that  in  several 
other  instances  state  libraries,  without  creating  or  having 
created  for  them  a  separate  division  and  without  any 
additional  appropriation,  are  attempting  legislative 
reference  work  in  some  degree.  Perhaps  it  would  be 
better  in  describing  their  work  to  say,  as  another  has 
suggested,  that  it  is  really  general  reference  work  on 
subjects  of  legislation  and  not  legislative  reference  work 
in  a  strict  and  more  exact  sense  of  the  term.^  And, 
judging  from  what  one  enterprising  state  ^  accomplished 
for  a  number  of  years  without  an  appropriation,  all  are 
not  going  as  far  in  this  direction  as  energy  and  the  spirit 
of  public  service  could  make  possible.  In  this  group 
doing  at  least  general  reference  work  on  subjects  of 
legislation  would   come  the  state  libraries  of   Illinois, 

«  C/.  C.  B.  Lester,  "The  Present  Status  of  Legislative  Reference 
Work."  A.  L.  A.  Proceedings,  Kaaterskill  Conference,  1913,  p.  199- 
202. 

'  Rhode  Island. 


76  Law,  Legislative  Reference  and 

Kentucky,  Maine,  Minnesota,  Mississippi,  New  Jersey, 
and  Virginia  though  not  all  are  subject  to  the  criticism 
just  made.  Whether  the  activity  in  this  direction  is  an 
indication  of  a  more  general  though  natural  return  to 
the  original  idea  back  of  the  founding  of  state  libraries, 
or  whether  it  is  due  to  the  more  or  less  competitive 
influence  of  the  numerous  efficient  and  well-developed 
legislative  reference  bureaus,  cannot  easily  be  determined. 

In  still  other  states  legislative  reference  work  is  carried 
on  by  other  agencies.  An  Alabama  law  of  1907  put  the 
work  in  the  hands  of  the  Department  of  Archives  and 
History.  The  Indiana  department  was  under  the  state 
library  by  the  original  law  of  1907,  but  in  1913  became 
a  separate  organization  with  the  title  Bureau  of  Legis- 
lative  and    Administrative    Information. 

Pennsylvania  has  had  a  similar  experience.  In  April, 
1909,  there  was  created  a  legislative  reference  bureau 
in  the  Pennsylvania  State  Library.  Two  years  later  the 
original  law  was  amended  and  the  bureau  put  under 
its  own  administration  with  enlarged  powers  and  duties. 
The  term  of  the  director  was  changed  from  "during 
good  behavior"  to  four  years,  but  he  remained  an 
appointee  of  the  Governor.  Although  the  bureau  is 
regarded  as,  and  for  all  practical  purposes  actually  is, 
an  independent  organization,  yet  by  the  letter  of  the 
law  it  is  still  the  legislative  reference  bureau  of  the 
Pennsylvania  State  Library.^" 

The  Nebraska  department  was  organized  in  1906  as 
a  part  of  the  Nebraska  State  Historical  Society,  but  in 
1911  a  separate  Nebraska  Legislative  Reference  Bureau 
was  created  by  law  to  be  affiliated  with  the  Department 
of  Political  Science  and  Sociology  and  with  the  College 

"  See  apx.,  p.  :i.58-61. 


Municipal  Reference  Libraries  77 

of  Law  of  the  University  of  Nebraska  and  placed  under 
the  rules  and  regulations  of  the  Board  of  Regents  of  the 
State  University. 

The  University  of  Washington  at  Seattle,  in  its  Ex- 
tension Division,  has  recently  established  a  Bureau  of 
Municipal  and  Legislative  Research  and  thus  becomes 
one  of  the  small  but  increasing  number  of  state  univer- 
sities which  are  seeking  to  put  their  specialists  in  govern- 
ment and  administration  and  their  specialized  library 
facilities  at  the  disposal  of  state  and  municipal  officers. 
In  Colorado  the  State  University,  located  at  Boulder, 
sent  a  member  of  the  Political  Science  faculty  to  Denver 
during  the  last  session  of  the  legislature  who  successfully 
inaugurated  a  legislative  reference  bureau  at  the  State 
House.  The  University  of  Arizona  at  Tucson  is  another 
institution  said  to  be  making  definite  plans  in  this 
direction. 

Illinois  since  1907  has  made  biennial  attempts  to 
establish  by  an  act  of  legislature  some  agency  for  doing 
legislative  reference  work.  An  independent  bureau 
at  Springfield,  a  division  of  the  state  library,  a  legislative 
and  administrative  reference  bureau  at  the  University 
of  lUinois  in  Urbana,  and  a  joint  legislative  commission 
empowered  among  other  things  to  conduct  a  legislative 
reference  department,  have  been  proposed  at  various 
times.  The  last  three  proposals  all  came  before  the 
1913  session;  the  final  one,  advanced  for  the  first  time 
at  this  session,  was  adopted  in  modified  form. 

The  bureau  provided  for  Illinois  is  composed  of  the 
Governor,  the  chairmen  of  the  Senate  and  House  Appro- 
priations and  Judiciary  committees,  five  members  who 
shall  serve  without  pay,  and  a  secretary.  The  secretary 
is  the  executive  officer  and   shall   receive  a  salary  not 


78  Law,  Legislative  Reference  and 

exceeding  So, 000  per  year.  Both  the  secretary  and 
the  other  members  of  the  bureau's  working  staff  are 
selected  by  the  governing  board  according  to  the  law. 
Various  sums  were  proposed  for  the  work  of  the  bureau, 
but  the  amount  carried  by  the  appropriation  bill  as 
passed  was  825,000  per  year  for  the  first  biennium.  Of 
this  amount  one  half  was  vetoed  by  the  Governor  who 
struck  out  the  words  "per  annum"  in  the  bill,  leaving 
$25,000  to  be  expended  in  two  years  as  the  bureau  should 
see  fit.  From  the  full  text  of  the  law  it  will  be  seen  that 
several  new  features  await  development.  Not  only 
shall  the  bureau  supply  information  as  to  existing  law 
and  comparative  legislative  experience,  and  aid  in  bill- 
drafting,  but  it  shall  establish  a  budget  system  in  the 
handling  of  state  appropriations  and  shall  place  before 
members  of  the  legislature  each  week  during  sessions 
an  accurate  statement  of  the  present  status  of  all  pending 
legislation. 

In  North  Dakota,  Wisconsin,  and  now  in  Ohio,  the  work 
is  part  of  that  assigned  to  the  library  commission.  In 
the  first  state  there  is  a  legislative  reference  "bureau" 
established  by  the  Public  Library  Commission;  in  the 
second  a  "department"  which  is  a  part  of  the  Wisconsin 
Free  Library  Commission.  In  Ohio  the  law  of  May, 
1910,  which  had  established  a  "legislative  reference  and 
information  department"  in  the  state  library  was  changed 
in  January,  1913,  so  that  there  is  now  an  independent 
legislative  reference  department,  nominally  under  the 
direction  and  supervision  of  the  state  board  of  library 
commissioners.  In  some  states  the  library  commission, 
as  in  others  the  state  librar\^  is  trying  to  render  assistance 
to  members  of  the  legislature  without  any  special  facili- 
ties or  funds  and  without  having  created  any  special 


Municipal  Reference  Libraries  79 

department  to  perform  this  service.  Missouri  and  New 
Jersey  illustrate  this. 

In  Maryland  the  legislative  reference  department 
of  the  City  of  Baltimore  is  authorized  by  the  city  charter 
to  collect  information  relating  to  subjects  of  proposed 
state  legislation  as  well  as  to  serve  the  interest  of  those 
officially  connected  with  the  Baltimore  city  government. 

There  is  also  on  foot  a  movement  to  establish  an 
agency  which  shall  serve  the  national  Congress  in  the 
same  manner  that  state  legislative  reference  bureaus 
are  now  serving  state  legislatures.  At  the  third  session 
of  the  sixty-second  Congress,  bills  were  introduced  by 
Senator  La  FoUette  ^^  and  Senator  Owen  ^-  on  this  subject. 
The  former  would  create  an  independent  Legislative 
Drafting  Bureau  and  also  a  Legislative  Reference  Divi- 
sion of  the  Library  of  Congress;  the  latter  sought  "to 
establish  the  Legislative  Reference  Bureau  of  the  Library 
of  Congress  and  the  Congressional  corps  of  legislative 
investigators,  and  to  maintain  them  until  July  1,  1914." 

Accompanying  the  report  ^^  of  the  Senate  Committee 
on  the  Library  relative  to  these  bills  are  the  committee 
hearings  held  February  4,  1913."  In  two  appendixes 
appear  the  Letter  from  the  Librarian  of  Congress  trans- 
mitting special  Report  Relative  to  Legislative  Reference 
Bureaus  ^^  and  the  Hearings  before  the  Committee  on  the 

"  S.  8337. 

»2  S.  8335. 

"  62d  Cong.  3d  Sess.  S.  Rept.  1271. 

"  Senator  Owen's  proposal  to  have  at  least  ten  professors  of  Social 
Science  at  the  head  of  as  many  departments  of  this  Congressional 
Legislative  Reference  Bureau  is  but  one  of  the  many  interesting 
points  brought  out  in  the  Hearings. 

'*  62d  Cong.  1st  Sess.  S.  Doc.  No.  7.  This  contains  Congressman 
Nelson's  bill,  with  alterations  suggested  by  Dr.  Putnam,  Librarian 
of  Congress. 


80  Law,  Legislative  Reference  and 

Library  of  the  House  of  Representatives  February  26,  and 
27,  1912.  These  hearings  were  held  on  various  house 
bills  ^®  that  had  been  introduced.  The  occasion  was 
notable  because  of  the  appearance  of  Mr.  Bryce  before 
the  committee,  not  as  British  Ambassador,  but  as  author 
of  the  "American  Commonwealth,"  a  scholar  and  states- 
man, ready  to  put  his  unique  knowledge  of  British  par- 
liamentary procedure  at  our  disposal.  He  discussed 
particularly  the  office  of  parliamentary  counsel,  the 
occupant  of  which  is  the  government's  bill-drafting 
expert,  and  he  indicated  clearly  the  definite  value  to  the 
government  of  having  in  its  service  a  man  of  such  expert 
knowledge  and  experience  in  framing  legislation,  whose 
tenure  of  office  is  secure  and  free  from  political  influence. 
Up  to  the  present  time  no  bill  to  create  a  national 
bureau  has  passed  Congress,  but  committees  of  both 
houses,  after  careful  investigation,  have  strongly  urged 
their  passage." 

2.    The  Materials. 

(a)     Legal  and  Documentary. 

As  the  improvement  of  legislation  is  the  aim  of  legis- 
lative reference  work,  existing  law  must  first  be  examined 
before  any  improvement  in  legislation  can  be  attempted. 
But  to  achieve  improvement  additional  data,  the  product 
of  experience  with  existing  law  under  known  conditions, 
must  be  studied  and  applied.  The  complexity  and 
multiplicity  of  subjects  which  the  legislation  of  today 
is  made  to  cover  would  make  it  appear  that  at  least 

'« 62  Cong.  1st  Sess.  H.  R.  18720,  31356,  4703. 

"  62d  Cong.  3d  Sess.  S.  Report  1271  and  H.  Reports  1533  and  1534; 
also  63d  Cong.  1st  Sess.  S.  Report  73.  Favorable  action  during  the 
present  Congress  is  not  at  all  unlikely. 


Municipal  Reference  Libraries  81 

theoretically  a  spacious  library,  unlimited  in  scope,  is 
the  best  laboratory  for  this  work.  Actually,  however, 
it  is  the  carefully  selected  library  offering  the  latest  and 
the  best  in  convenient  and  compact  form  that  renders 
service  most  effectively.  At  the  same  time  the  work 
should  be  carried  on  within  easy  reach  of  the  full  resources 
of  large  collections  in  the  fields  of  law,  political  and  social 
science,  history,  and  economics. 

The  law  library,  whose  resources  have  already  been 
characterized,  is  obviously  a  strong  ally  of  the  legislative 
reference  bureau  and  indeed  all  of  its  collections  will 
serve  their  turn  in  illuminating  some  point  bearing  on 
proposed  legislation.  In  recalling  these  resources  a 
difference  in  purpose  must  be  borne  in  mind.  The  lawyer 
must  apply  the  law  as  it  is  and  find  precedents  consistent 
with  and  interpreting  this  law,  to  the  end  that  his  client 
may  secure  justice;  the  legislator  deals  with  existing 
law  as  a  basis  for  change,  as  a  malleable  or  workable 
substance,  a  mere  frame-work  of  the  law  that  is  to  be. 

1.     Existing  Law  and  its  Judicial  Interpretation. 
Constitutions,  treaties,  statutes,  court  decisions. 

It  has  already  been  noticed  ^^  that  existing  law  is  found 
in  constitutions,  treaties,  statutes,  and  decisions,  and  that 
the  latter  not  only  put  the  common  or  unwritten  law 
into  positive  language  but  frequently  judicially  interpret, 
apply,  and  determine  the  constitutionality  of  enacted 
statutes. 

State  constitutions  are  available  as  a  rule  in  a  number 
of  separate  sources  for  each  state.  They  are  generally 
found  at  the  beginning  of  all  editions  of  the  revised  or 
compiled  statutes,  in  the  legislative  manuals  or  state 

^^  Ante,  p.  13-29. 


82  Law,  Legislative  Reference  and 

"blue  books,"  and  are  frequently  issued  in  separate 
pamphlets  by  the  secretary  of  state.  Occasionally  they 
are  published  in  book  form  with  extensive  annotations 
and  exhaustive  citations  to  decisions  interpreting  almost 
every  phrase  in  the  constitution.  Good  examples  of 
annotated  constitutions,  or,  as  they  might  almost  be 
called,  treatises  on  the  constitutional  law  of  the  separate 
states  are  Walter  McElreath's  Treatise  on  the  Constitution 
of  Georgia  ^^  and  Henry  G.  Snyder's  Constitution  of  Okla- 
homa.-^ 

In  the  Llnited  States  government  documents  the  state 
constitutions  have  nearly  all  been  published  at  one  time 
or  another,  generally  about  the  time  of  admission,  and 
may  be  found  in  the  collected  documents.  In  the  case 
of  the  recently  admitted  states,  they  can  still  be  obtained 
as  separates.  The  printing  of  the  constitution  of  Arizona 
as  Senate  Document  798  of  the  61st  Congress  3d  Session 
(1911)  is  an  instance.  In  addition,  local  state  histories 
or  school  civics  books  are  quite  likely  to  contain  this 
fundamental  document  of  state  government.  While 
all  these  sources  should  be  known  to  the  legislative 
reference  librarian,  the  annotated  editions  and  the 
pamphlet  editions  will  be  found  most  useful  and  best 
suited  to  the  needs  of  the  ready  reference  library. 

The  latest  compilation  of  state  constitutions  is  Francis 
Newton  Thorpe's  work,  entitled  Federal  and  State  Consti- 
tutions, Colonial  Charters  and  other  Organic  Laws  of  the 
States,  Territories,  and  Colonies  now  or  heretofore  forming 
the  United  States  of  America,  published  by  the  govern- 
ment printing  office  at  Washington,  as  59th  Congress 
2d  Session,  House  Document  357  (serial  nos.  5190-94). 

» 700  p.     Atlanta.     1912. 

»"  521  p.     Kansas  City,  Mo.     1908. 


Municipal  Reference  Libraries  83 

This  compilation  supersedes  the  earlier,  well-known 
Charters  and  Constitutions  (1600-1878)  of  Benjamin 
Perley  Poore,^^  the  New  York  Constitutional  Convention 
Manual  which  contained  in  two  volumes  the  constitu- 
tions of  the  several  states  as  existing  in  1894,^2  and  Frank- 
lin B.  Hough's  American  Constitutions,  1871.^^  Valuable 
as  it  is,  Thorpe's  compilation  should  not  be  used  indis- 
criminately by  historical  students  without  first  noting 
the  errors  pointed  out  by  Professors  Jameson  and  Dodd 
in  their  reviews  in  the  American  Historical  Review ^'^ 
and  the  American  Political  Science  Review?^ 

A  list  of  omissions  from  Thorpe  has  been  made  by 
Alfred  Z.  Reed  in  his  Territorial  Basis  of  Government  under 
the  State  Constitutions;  Local  Divisions  and  Rules  for 
Legislative  Apportionment,  published  as  volume  forty  of 
the  Columbia  University  Studies.-^ 

More  recently  some  comparative  summaries  or  digests 
of  state  constitutions  have  appeared  which  deserve  atten- 
tion. These  are  the  Digest  of  State  Constitutions  ^^  pre- 
pared for  the  use  of  the  Ohio  Constitutional  Convention 
of  1912  by  a  committee  of  the  Municipal  Association 
of  Cleveland  and  edited  by  T.  H.  Newman,  then  state 
librarian  of  Ohio,  and  State  Constitutions,  Comparative 
Provisions,  a  collection  of  twenty-eight  pamphlets  in 
which  the  provisions  of  the  various  state  constitutions 
are  compared  with  similar  provisions  in  the  Michigan 
Constitution   of    1850.     These   were    prepared    by    the 

"2v.     Wash.     1877. 

^  2  V.     Albany.     1894. 

"  2  V.     Albany.     1871. 

"v.  15:  153-55. 

«v.  4:  135-38. 

2*  See  his  "Bibliographical  Note,"  p.  242-50. 

"  271  p.    Columbus,  Ohio.     1912. 


84  Law,  Legislative  Reference  and 

legislative  reference  department  of  the  Michigan  State 
Library  for  the  Constitutional  convention  of  1907. 
Another  source  for  the  comparison  of  analogous  provi- 
sions in  state  constitutions  is  Frederic  J.  Stimson's  The 
Law  of  the  Federal  and  State  Constitutions  of  the  Lnited 
States,^  1908,  supplementing  in  Book  IIP^  that  part"" 
of  his  earlier  work,  American  Statute  Law,  which  presents 
the  same  data  to  1887. 

Tendencies  in  the  development  of  state  constitutions 
to  1887  were  considered  in  Henry  Hitchcock's  American 
State  Constitutions.^^  Professor  James  Quayle  Dealey's 
Our  State  Constitutions,^"^  1907,  is  a  comparative  discussion 
of  various  provisions  and  does  not  present  texts. 

The  proceedings  or  minutes  of  constitutional  conven- 
tions and  the  debates,  frequently  published  in  full,  throw 
valuable  light  on  the  original  intent  of  the  framers  and 
aid  in  a  proper  interpretation  of  the  final  form  of  the 
document.  The  legislative  reference  library  has  shown 
itself  of  great  value  to  constitutional  conventions  and 
should  have  the  proceedings  of  similar  bodies  in  its  col- 
lections. A  partial  list  of  these  proceedings  appears  in 
the  "Bibliography"  of  the  Ohio  Digest  of  State  Con- 
stitutions^^ already  mentioned.  A  more  extended  list 
appears  in  the  list  of  "Authorities"  ^^  in  Thorpe's  collec- 
tion. 

28  Bost.     Boston  Bk.  Co.     1908. 

2' Book  III:  "The  State  Constitutions  digested,  annotated,  and 
compared  with  the  Federal  Constitution." 

'"v.  I.     p.  1-114. 

"  Putnam,  N.  Y.     61  p. 

^  Supp.  to  the  Annats  of  the  American  Academy  of  PoHtical  and 
Social  Science,  March,  1907.     98  p. 

"  p.  249-52. 

"v.  I.     p.  xv-xxxv. 


Municipal  Reference  Libraries  8S 

The  United  States  Constitution  has,  of  course,  been 
pubHshed  innumerable  times  and  is  easily  available. 
It  appears  in  practically  all  the  state  legislative  manuals 
and  is  found  with  copious  citations  to  Supreme  Court 
decisions  and  carefully  indexed  in  the  Senate  Manual  ^ 
and  "House  Manual,"  both  frequently  reissued  and 
brought  down  to  date  for  the  use  of  the  members  of 
Congress.^^  The  dates  of  the  ratifications  of  the  Con- 
stitution and  its  several  amendments  appear  in  the 
Senate  Manual  after  the  text.  There  is  a  separate  index 
to  the  Constitution  in  the  Senate  Manual. 

Even  in  libraries  aiming  primarily  to  aid  legislation 
affecting  only  state  governments  the  constitutions  of 
foreign  countries  obviously  have  an  important  place  and 
attention  may  therefore  be  called  to  the  following 
compilations. 

Dodd,  Walter  Fairleigh. 

Modern  Constitutions,  a  Collection  of  the  F'unda- 
mental  Laws  of  twenty-two  of  the  most  important 
Countries  of  the  World,  with  Historical  and  Biblio- 
graphical Notes.  2  V.  Chicago,  University  of  Chi- 
cago Press,  1909. 

These  two  volumes  present  in  English  the  constitutions 
of  the  following  countries  with  amendments  through  1906  and 
notes  of  constitutional  changes  during  1907:  v.  1.  Argentine 
Nation,  Australia,  Austria,  Hungary,  Austria-Hungary, 
Belgium,  Brazil,  Canada,  Chile,  Denmark,  France,  Germany; 
V.  2,  Italy,  Japan,  Mexico,  Netherlands,  Norway,  Portugal, 
Russia,  Spain,  Sweden,  Switzerland,  and  the  United  States. 

A  general  bibliography  with  each  title  briefly  evaluated 
precedes  the  whole.  For  each  country  the  data  given  are: 
Summary  statement  of  its  constitutional  history  (about  one 
page);  a  selected  critical  bibliography  (about  one  page);  text 
of  the  constitution  with  occasional  footnotes. 

35  Cf.  ed.  of  Feb.  15,  1909,  p.  183-306. 

'*  It  is  frequently  published  separately,  the  latest  government 
printing  being  The  Constitution  of  the  United  States  as  Amended  to 
May,  1913.     (63d  Cong.  1st.  Sess.  S.  Doc.  12.) 


86  Law,  Legislative  Reference  and 

Dareste  de  la  Chavanne,  F.  R.  and  Dareste,  P. 

Les  Constitutions  Modernes,  Recueil  des  Constitu- 
tions en  Vigueur  dans  les  divers  Etats  d' Europe, 
d'Amerique  et  du  Monde  Civilis6,  traduit  sur  les 
Textes  et  accompagn^es  de  Notices  Historiques  et  de 
Notes  Explicatives.  Ed.  3.  2  v.  Paris,  Augustin 
Challamel,  1910. 


This  contains  the  text  in  French  of  the  constitutions  or 
other  organic  laws  of  over  forty  different  governments,  includ- 
ing many  of  the  smaller  European  states,  and  historical  and 
bibliographical  notes  for  numerous  other  countries,  the  several 
states  of  the  United  States,  Central  America,  and  the  British 
Colonies. 

It  is  the  best  general  collection  and  still  fairly  up-to-date; 
a  general  bibliography  of  collections  of  the  texts  of  constitu- 
tions follows  the  preface.  The  order  of  topics  relating  to  each 
constitution:  (1)  Historical  notes,  (2)  Text,  (3)  Bibliography. 
A  table  of  contents  to  each  volume  is  given  at  the  end;  volume 
two  contains  also  a  geographical  index,  and  an  analytical 
index.  Occasional  titles  are  annotated  and  entries  in  bibliog- 
raphies are  chronologically  arranged. 


Rodriguez,  Jose  Ignacio. 

.  .  .  American  Constitutions,  a  Compilation  of 
the  Political  Constitutions  of  the  Independent  Na- 
tions of  the  New  World  with  short  Historical  Notes 
and  various  Appendixes.  2  v.  Washington,  Govern- 
ment Printing  Office,  1906-7. 

A  collection  of  the  constitutions  of  all  the  independent 
countries  of  North,  Central,  and  South  America  and  the  three 
republics  of  the  Caribbean  Sea,  —  Dominican  Republic,  Haiti, 
and  Cuba. 

All  are  given  in  English,  Spanish,  and  the  language  of  the 
original  when  other  than  these.  "Unfortunately  sorne  of  the 
English  translation  is  inaccurately  done,  and  certain  of  the 
constitutions  have  not  been  revised  to  the  date  of  publication. 
The  collection  is,  however,  a  necessary  work  for  the  study  of 
Latin-American  constitutions."  ^' 

"  W.  F.  Dodd,  op.  cit.  v.  1,  p.  xx. 


Municipal  Reference  Libraries  87 

Carranza,  Arturo  B. 

Digesto  Constitucional  American.     2  v      Buenos 

Aires.     1900-01. 

"A  convenient  collection  of  Spanish-American  constitutions  " 
(Dodd.) 

New  York  (State)  —  Constitution  Convention,  1894. 

The  Convention  Manual  .  .  .  Foreign  Constitu- 
tions ...  by  George  A.  Glynn,  Compiler.  Pt.  2, 
Vol.  3,  439  p.     Albany,  The  Argus  Co.,  1894. 

Includes  Argentine  Republic,  Belgium,  Empire  of  Brazil, 
United  States  of  Brazil,  Colombia,  Ecuador,  France,  Germany, 
Honduras,  Japan,  Mexico,  Prussia,  Switzerland,  and  Venezuela! 

Additional  collections  of  constitutions  are  listed  in 
Dareste's  bibliography, ^^  but  the  most  important  and 
one  or  two  more  valuable  historically  than  currently 
have  been  named. 

New  constitutions  are  published  occasionally  in  the 
Supplement  to  the  American  Journal  of  International  Law, 
a.  supplement  devoted  entirely  to  the  republication  of 
official  documents  of  international  interest. 

Treaties  to  which  the  United  States  is  a  party,  it  will 
be  recalled,  are  available  to  March  4,  1913,  in  the  two 
volume  compilation  by  Malloy,^^  and  supplementary 
third  volume  by  Garfield  Charles.  Current  treaties  and 
conventions  appear  in  the  Treaty  Series  of  the  Depart- 
ment of  State,  in  the  Statutes  at  Large,  and  unofficially  in 
the  Supplement  to  the  American  Journal  of  International 
Law. 

The  best  sources  on  the  treaty-making  power  are  Charles 
Henry  Butler's  The  Treaty-making  Power  of  the  United 
States,^*^  Samuel  B.  Crandall's  Treaties,  Their  Making  and 

^  Dareste,  op.  cit.  1 :  xxi-xxiii. 

'»  C/.  ante,  p.  25-26,  35-36  note  36. 

«  2  V.     New  York.     1902. 


88  Law,  Legislative  Reference  and 

Enforcement,'^^  Edward  S.  Corwin's  National  Supremacy; 
Treaty  Power  versus  State  Power  ^"^  and  Moore's  Digest 
of  Internatiotial  Law.*^  Hershey's  chapter  on  "Inter- 
national Treaties"  in  his  Essentials  of  International 
Public  Law  ^  is  supplied  with  copious  footnotes  and  a 
select  bibliography. 

No  matter  how  available  the  resources  of  a  good  law 
library  may  be,  the  legislative  reference  bureau  will 
appreciate  its  own  complete  collection  of  American 
statute  law.  This  would  comprise  the  Compiled  Statutes, 
or  Federal  Statutes  Annotated,  Statutes  at  Large,  Session 
Laws  and  slip  laws  to  date,  for  the  federal  government, 
and  the  latest  revision  or  compilation  with  session  laws, 
and  slip  laws  when  issued,  to  date,  for  each  of  the  separate 
states. 

Court  decisions  most  frequently  needed  in  this  work 
are  those  judicially  interpreting  enacted  statutes  and 
those  determining  the  constitutionality  of  important 
laws.  The  various  series  in  which  these  are  published 
need  not  be  restated  and  the  volumes  themselves  need 
not  occupy  space  in  the  legislative  reference  library. 
Their  place  is  the  law  library  unless  exception  is  made 
for  a  duplicate  set  of  the  local  state  reports.  The  advance 
sheets,  separate  prints,  or  first  newspaper  notices  of 
important  decisions  may  well  be  kept  in  the  vertical 
files  or  pamphlet  boxes  with  other  material  bearing  on 
the  same  subject.  So  placed  they  will  frequently  meet 
a  definite  need  which  may  have  arisen  long  before  the 
bound  volumes  are  available. 

*^  N.  V.     1904.     {Co\umbia.\]m\QTs\ty  Studies  in  Hist.   Economics 
and  Public  law,  v.  21,  no.  1.) 
«  N.  Y.  Holt.     1913. 
«Vol5,hap.  17. 
**  Chap.  20.     N.  Y.  Macm.     1912. 


Municipal  Reference  Libraries  89 

2.     Proposed  Law. 

Bills  and  constitutional  amendments. 

A  bill  is  the  draft  of  a  proposed  law  as  introduced  into 
the  legislature.  The  draft  does  not  become  a  law  until 
passed  by  both  houses  and  signed  by  the  speaker  of  the 
house,  president  of  the  senate,  and  the  governor.  Bills 
may  become  law  without  the  governor's  signature,  pro- 
vided they  are  not  vetoed  within  a  certain  number  of 
days. 

A  copy  of  each  bill  and  resolution  introduced  into  the 
state  legislature  should  be  kept  in  the  legislative  reference 
bureau.  They  should  be  bound  into  volumes  by  sessions 
with  a  complete  table  of  contents  and  index  in  each 
volume.  A  continuous  series  of  such  volumes  will  be 
of  value  not  only  to  the  political  historian  as  a  record 
of  attempted  legislation  and  therefore  as  a  partial  index 
to  economic  and  social  conditions,  but  it  will  have 
added  value  to  the  legislator  as  a  record  of  experience. 
By  careful  study  of  these  bills  he  will  be  enabled  to 
model  new  measures  the  better,  avoiding  the  errors  of 
the  past  and  adopting  those  features  which  have  been 
tested  by  experience  and  found  satisfactory. 

For  purposes  of  comparison  a  selection  should  be 
made  from  the  current  bills  of  other  states,  and  a  system 
of  exchange  can  be  arranged  with  advantage ;  the  criterion 
of  selection  being  that  the  bill  covers  a  subject  already 
or  soon  likely  to  be  under  consideration,  or  one  which 
ought  to  be  receiving  consideration  by  the  legislature. 
Occasionally  bills  introduced  into  Congress  may  be 
secured  for  like  reasons  or  because  of  general  public 
interest  attaching  to  them. 

In  many  states  there  is  published  either  officially  or 
privately  at  regular  intervals,  during  the  session  of  the 


90  Law,  Legislative  Reference  and 

legislature,  some  synopsis  of  the  proceedings  of  each 
house,  and  from  this  can  be  ascertained  what  bills  of 
local  interest  have  been  introduced  elsewhere. 

Proposed  constitutional  amendments  should  be  as 
carefully  preserved  as  bills,  for  proposed  changes  in  the 
organic  law  of  a  state  are  as  significant  for  the  political 
historian  and  the  legislator,  perhaps  more  significant, 
than  proposed  changes  in  the  statute  law.  The  study 
of  a  rejected  amendment  or  bill,  especially  if  the  reasons 
for  the  rejections  are  known,  may  result  in  a  new  draft 
more  worthy  of  general  acceptance. 

Bound  files  of  these  important  records  have  not  in 
the  past  been  preserved  in  many  states.  At  present 
more  are  attending  to  it  and  the  office  doing  the  work  is 
generally  the  state  library  or  the  legislative  reference 
bureau.  The  original  official  copies  of  enrolled  bills  are 
kept  on  file  in  the  office  of  the  secretary  of  state  and  of 
course  could  not  be  subjected  to  frequent  handling,  such 
as  they  would  receive  in  a  legislative  reference  library, 
without  serious  results. 

Bills  are  printed  separately  when  favorably  reported 
by  the  committees  to  which  they  are  first  referred.  In 
cases  where  there  is  merely  a  minority  report  favoring 
the  bill  it  is  printed  when  so  ordered.  In  addition  bills 
as  introduced,  amended,  and  as  finally  passed  are  some- 
times printed  in  the  journals  of  the  legislature,  or  may  be 
embodied  in  the  reports  of  committees  which  have  had 
them  under  consideration.  They  are  most  likely  thus 
to  appear  in  conference  committee  reports  or  in  the  report 
of  the  committee  on  enrolled  bills. ''■^ 


**  This  procedure  is  not  at  all  uniform  in  the  several  states.     See 
also  p.  212-17  post. 


Municipal  Reference  Libraries  91 

3.     Public  Documents. 

(a)     National. 

1.  Bibliographical  Statement. 
For  a  full  discussion  of  the  publication,  distribution, 
reference  value,  and  technical  library  treatment  of  United 
States  Government  documents  consult  James  Ingersoll 
Wyer,  United  States  Government  Documents  (78  p. 
Albany,  N.  Y.,  1906:  N.  Y.  State  Lihrsiry  Bulletin  102, 
Library  School  21);  a  scholarly  monogi^ph  of  funda- 
mental importance,  now  out  of  print  but  worthy  of  re- 
printing in  spite  of  later  publications.  In  Elfrida  Ever- 
HART,  A  Hand-book  of  United  States  Public  Documents 
(320  p.  H.  W.  Wilson  Co.,  Minneapolis,  1910),  more 
attention  is  paid  to  the  organization  of  the  government 
departments  and  a  larger  number  of  individual  publica- 
tions are  considered;  nothing  is  given  regarding  the 
treatment  of  documents  in  libraries  and  the  citations 
of  "authorities"  at  the  ends  of  chapters  lack  important 
bibliographical  details. 

United  States  Superintendent  of  Documents, 
Checklist  of  United  States  Public  Documents,  1789-1909 
(Ed.  3.  1707  p.  V.  I,  Washington,  1912).  A  valuable 
introduction  defines  the  term  "Public  Documents"  (see 
page  33,  infra),  presents  a  careful  review  of  all  cata- 
logues, indexes,  and  check-lists  previously  issued,  explains 
the  classification  of  documents  adopted  at  the  ofifice 
of  the  Superintendent  of  Documents,  the  serial  number,^^ 
the  present  method  of  publication  and  distribution,  the 

*8  For  other  explanations  of  the  practice  of  assigning  a  consecutive 
"serial"  number  to  all  volumes  in  the  Congressional  Set  consult 
Wyer  (1906),  p.  38,  and  Everhart,  p.  17-18. 


92  Law,  Legislative  Reference  and 

withdrawal  from  the  Congressional  Set  as  distributed 
to  depository  libraries  of  annual  department  reports  and 
certain  other  documents.  The  first  table,  pages  3-169, 
lists  the  documents,  through  the  sixtieth  Congress  in 
serial  number  order  (01-5561).  The  main  body  of  the 
book  is  a  list  of  departmental  publications  arranged  by 
the  Documents  Office  classification.  At  the  end  appears 
an  alphabetical  list  of  the  departments,  bureaus,  divisions, 
offices,  commissions,  committees,  etc.,  represented  by 
classes  in  the  preceding  pages  of  the  Check-list  with  page 
reference  to  the  complete  list  of  the  publications  of  each 
department.  A  second  volume  to  form  a  subject  index 
is  being  prepared. 

J.  L  W'yer,  United  States  Government  Documents  in 
Small  Libraries  (Ed.  3  rev.  28  p.  A.  L.  A.  Chicago,  1910), 
presents  the  essentials  of  government  document  acquisi- 
tion, selection,  arrangement,  and  cataloguing  from  the 
small  library  point  of  view;  particularly  valuable  in 
reference  work  for  its  lists  of  recommended  serials  and 
single  documents. 

In  this  connection  attention  should  be  called  to  the 
public  documents  section  of  the  A.  L.  A.  Catalogue  1904 
(p.  367-372),  a  selected  list  of  the  documents  of  most 
importance  to  small  libraries  compiled  by  Alice  B. 
Kroeger.  Alice  Bertha  Kroeger,  Guide  to  the  Study 
and  Use  of  Reference  Books,  (Ed.  2  rev,  147  p.  A.  L.  A, 
Publishing  Board,  Boston,  1908),  p.  93-97  discuss  United 
States  government  documents  giving  references  to 
readings  on  the  subject,  and  a  well-annotated  list  of  the 
various  indexes  and  catalogues.  In  the  Supplement 
1909-1910  to  the  Guide,  compiled  by  Isadore  Gilbert 
Mudge  (24  p.  A.  L.  A.  Chicago,  1911),  p.  19-20  are 
devoted   to  government  documents. 


Municipal  Reference  Libraries  93 

Public  Documents. 

The  legislative  reference  library  which  is  part  of  a 
state  library  will  have  at  its  disposal  practically  all  the 
publications  of  the  United  States  government  as  all 
state  and  territorial  libraries  are  designated  depositories 
to  which  the  Superintendent  of  Documents  sends  one 
copy  of  all  documents  he  is  authorized  to  distributed^ 

The  documents  most  useful  in  its  work  would  naturally 
be  assigned  to  the  legislative  reference  department  and 
there  classified  and  catalogued  like  other  publications. 
If  the  main  library  does  not  care  to  assign  its  depository 
volumes  to  the  department,  duplicate  copies  can  be 
obtained  in  most  instances.  The  Superintendent  of 
Documents  will  usually  supply  copies  on  request  in  such 
cases  though  occasionally  extra  copies  must  be  pur- 
chased even  by  libraries.  If  the  publication  desired  is 
issued  by  a  bureau  or  a  department,  a  request  to  the 
issuing  office  will  generally  get  it  though  now  such 
requests  are  forwarded  by  the  issuing  ofifice  to  the  Super- 
intendent of  Documents  for  fulfillment.  The  depart- 
ment thus  controls  its  own  mailing  list  though  the  actual 
physical  distribution  is  done  at  the  document  ofifice,  an 
arrangement  entered  into  at  the  suggestion  of  the  Presi- 
dent's Commission  on  Economy  and  Efificiency.''^ 

2.     The  Congressional  Set  and   Illustrative  Docu- 
ments. 
For  a  number  of  years  the  terms  "depository  set," 
"sheep  set"  and   "Congressional  Set"  were  used  inter- 
changeably, each  referring  to  the  same  set  of  documents, 
though  each  had  a  special  significance. 

*'  For  a  full  explanation  of  the  depository  plan  consult  Wyer  (1910), 
p.  5-7,  and  Everhart,  p.  5-7. 

*^  Cf.  its  Report  Relative  to  Centralization  of  the  Distribution  of 
Government  Publications.     U.  S.  62d  Congress,  2d.  Sess.  Sen.  Doc.  293. 


94  Law,  Legislative  Reference  and 

In  the  first  place,  the  set  was  composed  of  "all  docu- 
ments ordered  printed  by  Congress  and  of  no  others," 
hence  the  appropriateness  of  the  term  congressional; 
secondly,  the  volumes  were  bound  in  full  sheep;  and, 
lastly,  of  the  sheep-bound  congressional  sets,  500  of  the 
"usual  number"  (1682)  printed  by  congressional  authori- 
zation were  set  aside  for  distribution  by  the  Superinten- 
dent of  Documents  to  libraries  designated  by  members 
of  Congress  for  that  purpose,  and  therefore  termed 
depository  libraries/^ 

The  annual  reports  of  departments,  etc.,  though  made 
to  Congress,  have  been  withdrawn  from  the  so-called 
"Congressional  Set"  made  up  of  the  Senate  and  House 
Journals,  Senate  Reports,  Senate  Documents,  House 
Reports,  and  House  Documents.  In  the  last  four  of  these 
series  the  documents  are  numbered  consecutively  through 
all  the  sessions  of  one  Congress.  Documents  in  the 
Congressional  Set  will  be  sent  on  request  by  members 
of  the  Senate  and  House,  usually  by  the  Superintendent 
of  Documents  —  who  may  also  sell  at  cost  —  and  can 
almost  always  be  obtained  promptly  by  addressing 
impersonally  the  "Senate  Document  Room"  or  the 
"House  Document  Room,"  Washington,  D.  C.  Separate 
bills  can  be  obtained  only  on  application  to  members 
of  Congress,  and  committee  hearings  on  application  to 
the  committees  which  conducted  the  hearings. 

Beginning  with  the  sixtieth  Congress  not  only  were 
department  and  bureau  reports  taken  out  of  the  Con- 
gressional Set,  but  the  documents  making  up  the  set  were 
bound  in  a  durable  cloth  instead  of  the  sheep  binding 
used  theretofore.  At  the  same  time  the  practice  of 
binding  a  number  of  miscellaneous     documents  into  a 

«a.  Wyer  (1906),  p.  11-13. 


Municipal  Reference  Libraries  95 

bulky  volume  was  changed  so  that  now  single  docu- 
ments of  any  size  are  bound  separately,  and  consequently 
can  be  classified  and  shelved  with  other  publications  on 
the  same  subject.  Beginning  with  the  documents  of 
the  sixtieth  Congress  also,  the  serial  number  was  no 
longer  affixed  to  volumes  coming  from  the  Documents 
Office.  It  may,  however,  be  learned  from  a  "schedule  of 
volumes,"  published  by  the  Superintendent  of  Docu- 
ments at  the  close  of  each  session  in  the  Documents  Index. 

In  a  number  of  cases  the  privilege  of  being  a  desig- 
nated depository  library  to  which  practically  all  the 
publications  of  the  government  are  sent  has  proved  a 
burden.  In  view  of  repeated  requests  from  librarians, 
where  such  is  the  case,  that  they  be  allowed  to  select 
those  documents  most  suitable  for  their  libraries  and 
be  not  compelled  to  handle  the  whole  output  of  the 
government  printing  office,  the  Superintendent  of  Docu- 
ments has  recently  sent  out  a  classified  and  annotated 
list  from  which  depository  libraries  may  select  for  future 
receipt  only  such  documents  as  they  care  to  preserve. 
The  list  is  on  sheets  with  ten  titles  to  the  sheet,  each  of 
which  is  printed  in  catalogue  form  and  lined  to  catalogue 
card  size.  When  checked  and  returned  to  the  Docu- 
ments Office,  a  card  file  mailing  list  will  be  made  from  the 
returned  slips.  This  is  a  definite  step  forward  both  in 
government  and  library  economy. 

It  is  impossible  to  indicate  at  all  adequately  in  a  few 
brief  paragraphs  the  immense  value  in  reference  libraries 
of  the  great  output  of  the  government  printing  office. 
In  the  annual  reports  and  special  publications  of  the 
administrative  offices  and  scientific  bureaus  of  the 
government,  practically  the  whole  field  of  social,  pohtical, 
and  natural  science,  in  theory  and  in  practice,  is  covered, 


96  Law,  Legislative  Reference  and 

most  of  the  publications  being  the  work  of  experts  in 
their  special  fields.  The  general  characteristics  of  these 
publications  are  set  forth  in  the  works  of  Wyer  and 
Everhart. 

Of  the  series  now  comprising  the  Congressional  Set, 
the  Senate  Reports  are  the  reports  of  Senate  committees 
on  public  and  private  bills  and  resolutions.  They  are 
usually  brief,  though  not  always,  and  frequently  reprint 
the  bill  being  reported  upon  in  the  form  approved  by 
the  committee.  The  reports  on  public  bills,  numbered 
consecutively,  are  printed  and  distributed  in  advance 
sheets,  and  later  accumulated  in  a  series  of  volumes  which 
form  part  of  the  serially  numbered  Congressional  Set.*" 

House  Reports  are,  similarly,  the  reports  of  House 
committees  on  pending  legislation. 

The  Senate  Documents  now  include  only  publications 
ordered  printed  by  the  Senate  and  are  mainly  the  results 
of  investigations  authorized  by  a  Senate  resolution, 
into  various  subjects  of  interest  to  the  Senate  as  a  law- 
making body.  The  inclusion  prior  to  1907  of  depart- 
ment and  bureau  publications  in  the  Senate  Documents 
greatly  enlarged  their  bulk  over  what  it  now  is.*^ 

Among  recent  important  Senate  Documents  the 
following  may  be  named  as  representing  a  type  of  value 
to  state  law-making  bodies  and  consequently  to  the 
legislative  reference  library. 

^  Cf  Everhart  p.  20. 

"  Certain  documents  not  deemed  of  general  interest  are  no  longer 
bound  into  the  depositor^'  volumes,  but  are  found  only  in  the  volumes 
sent  to  the  Senate  and  House  libraries  and  to  the  Librar>'  of  Con- 
gress. For  an  explanation  of  this  plan,  see  the  Monthly  Catalogue 
of  the  Superintendent  of  Documents  for  January,  190S,  p.  263- 
72,  February,  1910,  p.  373-78  and  the  preface  to  the  Document 
Index  for  the  sixtieth  Congress,  first  session. 


Municipal  Reference  Libraries  97 

Agricultural  Credit.    Europe. 

U.  S.  Senate. 

Agricultural  Co-operation  and  Rural  Credit  in 
Europe,  Information  and  Evidence  secured  by  the 
American  Commission.  .  .  .  916  p.  Wash.  1913. 
(63d.  Cong.  1st.  Sess.  S.  Doc.  214.) 

An  exhaustive  and  elaborate  document  covering  Italy, 
Egypt,  Roumania,  Hungary,  Austria,  Russia,  Germany,  Bel- 
gium, Holland,  Denmark,  Norway,  Spain,  France,  England, 
Wales,  Scotland,  and  Ireland. 

Agricultural  Credit.     Germany. 

U.  S.  Senate. 

Agricultural  Credit  and  Co-operation  in  Germany: 
Report  to  the  British  Board  of  Agriculture  and 
Fisheries  of  an  Inquiry  into  Agricultural  Credit  and 
Agricultural  Co-operation  in  Germany,  with  some 
notes  on  German  Live-stock  Insurance,  bv  J.  R. 
Cahill.  474  p.  Wash.  1913.  (63d  Cong,  ist  Sess. 
S.  D.  17.) 

Includes  laws,  documents,  and  a  bibliography  in  an  appendix. 

Cost  of  Living. 

U.  S.  Senate. 

Cost  of  Living  in  American  Towns.  533  p. 
Wash.  1911.     (62d  Cong.  1st  Sess.  S.  D.  22.) 

An  exact  reprint  of  the  report  of  an  inquiry  by  the  Board 
of  Trade  of  London  into  working  class  rents,  housing,  retail 
prices,  together  with  rates  of  wages  in  certain  occupations  in 
the  principal  industrial  towns  of  the  United  States  of  America. 
There  are  separate  reports  for  New  York,  Atlanta,  Augusta, 
Baltimore,  Birmingham,  Boston,  Brockton,  Chicago,  Cin- 
cinnati, Cleveland,  Detroit,  Duluth,  Fall  Riv^er,  Lawrence, 
Louisville,  Lowell,  Memphis,  Milwaukee,  Minneapolis,  New 
Orleans,  Newark,  Patterson,  Philadelphia,  Pittsburgh,  Provi- 
dence, St.  Paul,  St.  Louis,  and  Savannah. 


98  Law,  Legislative  Reference  and 

Cost  of  Living. 

U.  S.  Senate. 

Investigation  relative  to  Wages  and  Prices  of 
Commodities.  4  v.  Wash.  lOlL  (61st  Cong.  3d 
Sess.  S.  D.  847.) 

Volumes  1-2  comprise  the  report  and  hearings;  volumes  3-4 
present  statistics  of  wages  and  prices  in  the  United  States  and 
abroad  and  an  index. 

Criminology. 

U.  S.  Senate. 

Man  and  Abnormal  Man  including  a  Study  of 
Children  in  connection  with  Bills  to  Establish  Labo- 
ratories under  Federal  and  State  Governments  for  the 
Study  of  Criminal,  Pauper,  and  Defective  Classes, 
with  Bibliographies,  by  Arthur  McDonald.  780  p. 
Wash.  1905. 

An  extensive  collection  of  criminological  and  psychological 
data  with  bibliographies  of  the  separate  phases  of  criminality 
and  other  topics. 

Election  of  Senators. 

U.  S.  Senate. 

Papers  relating  to  the  Election  of  Senators  by 
direct  Vote  of  the  People.  91  p.  Wash.  1908. 
(60th  Cong.  1st  Sess.  S.  D.  512.) 

Includes  speeches,  documents,  a  list  of  principal  speeches 
and  reports  made  in  Congress  in  recent  years  and  an  abstract 
of  laws  relating  to  the  election  of  Senators  in  the  United 
States. 

Immigration. 

U.  S.  Senate. 

Report  of  the  Immigration  Commission.  42  v. 
Wash.  1911-1913.     (61st  Cong.  2d  Sess.) 

Volumes  1-2  are  abstracts  of  the  reports  and  the  Commis- 
sion's recommendations;  v.  3,  Statistics,  1819-1910;  v.  4, 
Emmigration  Conditions  in  Europe;  v.  5,  Dictionary  of  Races 
or  Peoples;  v.  6-25,  Immigrants  in  Industries,  pts.  1-25; 
V.  26-27,  Immigrants  in  Cities;  v.  28-38,  Various  Sociological 
and  Anthropological  Studies;  v.  39,  F'edcral  and  State  Legisla- 
tion; V.  40,  Other  Countries;  v.  41,  Recommendations  of 
Societies;   v.  42,  Index.     A  veritable  encyclopedia. 


Municipal  Reference  Libraries  99 

Inheritance  Tax. 

U.  S.  Senate. 

Digest  of  the  Principal  Features  of  the  Laws  of 
Great  Britain,  France,  and  Germany  together  with 
an  Outline  of  Inheritance  Taxation  in  the  United 
States  and  a  Collection  of  Judicial  Decisions  relating 
thereto.  Wash.  1909.  (61st  Cong.  1st  Sess.  S.  D. 
114.) 

Social  Conditions,  Washington. 

U.  S.  Senate. 

Reports  of  the  President's  Homes  Commis- 
sion ...  on  Improvement  of  existing  Houses  and 
Elimination  of  Unsanitary  and  Alley  Houses,  on 
Social  Betterment,  and  on  Building  Regulations  .  .  . 
with  Resolutions  and  Recommendations.  381  p. 
Wash.  1909.     (60th  Cong.  2d  Sess.  S.  D.  644.) 

Relates  specifically  to  the  District  of  Columbia,  but  is  of 
great  value  and  general  application  elsewhere;  covers  occu- 
pational diseases,  and  includes  a  practical  treatise  on  personal 
hygiene;    a  valuable  document  too  little  advertised. 

Women's  Labor. 

U.  S.  Senate. 

Reports  on  Condition  of  Woman  and  Child  Wage- 
earners  in  the  United  States.  19  v.  Wash.  1912- 
1913.     (61st  Cong.  2d  Sess.  S.  D.  654.) 

Separate  volumes  are  devoted  to  selected  industries  such  as 
Silk  (v.  4),  Glass  (v.  3),  Men's  Ready  Made  Clothing  (v.  2), 
Cotton  Textiles  (v.  1),  etc.;  and  to  special  topics  such  as 
History  of  Women  in  Industry  in  the  United  States  (v.  9), 
in  Trade  Unions  (v.  10),  Infant  Mortality  and  its  Relation  to 
the  Employment  of  Mothers  (v.  13),  Juvenile  Delinquency 
and  its  Relation  to  Employment,  and  the  Beginnings  of  Child 
Labor  Legislation  in  certain  States.^- 

'^  The  states  treated  are  Massachusetts,  Rhode  Island,  Connecti- 
cut, Vermont,  New  Hampshire,  Maine,  New  York,  New  Jersey, 
Pennsylvania,  Delaware,  Maryland,  Ohio,  North  Carolina,  South 
Carolina,  Georgia,  and  Alabama. 


100  Law,  Legislative  Reference  and 

The  numerous  and  valuable  publications  of  the 
National  Monetary  Commission  which  have  cov- 
ered the  field  of  money  and  banking  at  home  and  abroad 
so  thoroughly  were  published  as  Senate  Documents  of  the 
sixty-first  Congress.  A  list  of  these  publications  was 
issued  by  the  Commission.  The  banking  legislation 
of  foreign  countries  is  considered  in  the  \olumes  devoted 
to  the  banking  systems  of  the  particular  countries  dis- 
cussed. The  German  Imperial  Banking  Laws  edited  by 
Dr.  R.  Koch,  together  with  the  German  Stock  Exchange 
Regulations  form  a  separate  treatise  of  three  hundred 
and  thirty  pages.'^  A  Digest  of  State  Banking  Statutes  ^* 
through  the  legislative  sessions  of  1909  is  included  in  the 
set. 

The  House  Documents  form  a  similar  series  to  those 
of  the  Senate,  being  numbered  consecutively  for  each 
Congress.  They  comprise  a  miscellany  of  valuable 
publications  on  subjects  deemed  of  interest  to  the 
House  as  a  law-making  body.  From  the  recent  volumes 
of  importance  the  following  are  typical  of  what  may  be 
of  special  value  in  a  legislative  reference  library. 

National  Budget. 
U.  S.  House. 

The  Need  for  a  National  Budget,  Message  from 
the  President  of  the  L'nited  States  transmitting 
Report  of  the  Commission  on  Economy  and  Effi- 
ciencv  on  the  Subject  of  the  Need  for  a  National 
Budget.  568  p.  Wash.  1912.  (62d  Cong.  2d 
Sess.  House  Document  854.) 

Contains  historical  and  descriptive  data,  discussions  of  the 
constructive  recommendations  of  the  Commission,  a  pro  forma 
budget  and  supporting  documents,  with  appendixes  of  laws,  a 

"  61st  Cong.  2d  Sess.  S.  D.  574.     330  p.     Wash.  1910. 
"  61st  Cong.  2d  Sess.  S.  D.  353.     746  p.     Wash.  1910. 


Municipal  Reference  Libraries  101 

bibliography  of  congressional  inquiries  into  the  conduct  of 
the  business  of  executive  departments  other  than  by  standing 
committees,  1789-1911,  and  answers  to  a  questionnaire  on 
budget  methods  and  procedure  in  foreign  countries.  Thirty- 
nine  foreign  countries  are  represented. 

In  the  Proceedings  of  the  Academy  of  Political  Science  (3: 
N.  Y.,  1912)  Mr.  Frederick  A.  Cleveland  discussed,  "The 
Budget  as  a  Means  of  Locating  Responsibility  for  Waste  and 
Inefficiency:  What  the  President  is  Trying  to  do  by  Way  of 
Budget  Making  for  the  National  Government."  This  was 
reprinted  by  the  President's  Commission  on  Economy  and 
Efficiency. 

Tariff  Laws. 
U.  S.  House. 

Tariff  Acts  passed  by  the  Congress  of  the  United 
States  from  1789-1909,  including  all  Acts,  Resolu- 
tions, and  Proclamations  modifying  or  changing 
those  Acts.  1040  p.  Wash.  1909.  (61st  Cong.  2d 
Sess.  H.  Doc.  671.) 

Full  texts  are  given  of  all  acts  and  proclamations  in  chrono- 
logical order.  A  separate  index  to  each  of  thirty-seven  impor- 
tant acts  and  an  additional  index  to  miscellaneous  acts  are 
provided  enabling  the  tariff  levied  on  any  class  of  material 
from  1789  to  1909  to  be  easily  ascertained. 

3.  Departmental  Publications  and  Compilations 
of  State  Laws  in  Federal  Documents. 

Among  the  regular  and  special  publications  of  sepa- 
rate government  offices  which  do  not  appear  in  the 
Congressional  Set  a  great  number  are  naturally  valuable 
for  their  discussions,  or  their  compilations  of  laws,  on 
subjects  which  are  within  the  province  of  state  legisla- 
tion. In  fact,  practically  all  offices  at  some  time  fur- 
nish information  useful  in  this  connection.  Agriculture, 
education,  civil  service,  labor,  corporations,  railroads, 
forestry,  taxation,  public  health  —  in  what  separate  states 
are  not  these  questions  of  prime  importance? 

The  Yearbook  and  Farmers'  Bulletins  of  the  Depart- 
ment of  Agriculture  —  in  the  latter  series  a  compilation 


102  Law,  Legislative  Reference  and 

of  state  game  laws  appears  annually ;  the  Annual  Reports 
of  the  Civil  Service  Commission;  the  important  special 
reports  of  the  Bureau  of  Corporations  ^*  on  the  Beef 
Industry,  Transportation  of  Petroleum,  Petroleum  In- 
dustry, Cotton  Exchanges,  Tobacco  Industry,  Trans- 
portation by  Water  in  the  L^nited  States,  the  Steel 
Industry,  Lumber  Industry,  Water  Power  Development 
in  the  United  States,  on  Cotton  Tare,  and  the  Inter- 
national Har\'ester  Company ;  the  report  on  the  System 
of  Taxing,  Manufacturing,  Mercantile,  Transportation, 
and  Transmission  Corporations  in  the  various  States ;  *' 
the  Annual  Reports  of  the  Commissioner  of  Labor  each 
devoted  to  a  single  topic  such  as  Convict  Labor  (1905), 
Strikes  and  Lockouts  (1906),  Labor  Laws  of  the  United 
States  (1907),  Workmen's  Insurance  and  Benefit  Funds 
in  the  United  States  (1908),  in  which  "statutory  regu- 
lations" are  given,"  Workmen's  Insurance  and  Compen- 
sation Systems  in  Europe  (2v.,  1909),  Industrial  Education 
in  the  United  States  (1910),  containing  the  laws  relating 
to  industrial  education,^^  and  a  selected  bibliography  of 
industrial  education  ;^^  the  Bulletin  of  the  Bureau  of 
Labor  Statistics  now  issued  (since  Bulletin  100)  in  sev- 
eral separate  series,^  Bulletin  111  being  "Labor  Legisla- 
tion of  1912"  with  a  tabulation  of  the  principal  features 

^*  See  "Reports  Issued  by  the  Bureau"  in  its  Annual  Report,  1912, 
p.  17-22. 

"Part  1,  "New  England";  2,  "Middle  Atlantic";  3,  "Eastern 
Central";  4,  "Western  Central." 

"  p.  756-87. 

'*  Chap.  xvi. 

''  Chap.  xvii. 

*"  The  separate  series  are  "Wholesale  Prices,"  "Retail  Prices  and 
Cost  of  Living,"  "Wages  and  Hours  of  Labor."  "Women  in  Industry," 
"Workmen's  Insurance  and  Compensation  (including  Laws),"  "Con- 
ciliation and  Arbitration,"  "Labor  Laws  of  the  United  States," 
"Foreign  Labor  Laws"  and  "Miscellaneous  Series." 


Municipal  Reference  Libraries  103 

of  all  state  workmen's  compensation  laws  and  a  detailed 
index  to  all  state  labor  legislation  through  1912  as 
recorded  in  the  1907  compilation  and  subsequent  Bul- 
letins —  all  these  represent  but  a  few  of  the  government 
departments'  publishing  activities  of  definite  value  in 
legislative  reference  work. 

In  addition,  special  attention  should  be  called  to  the 
bibliographies  issued  by  the  Library  of  Congress,  both 
those    published    separately  ^^  and   those    appearing    at 

"  Library  of   Congress   Bibliographies   in  the   fields  of   Political 
Science  and  Economics  published  separately  are: 
Anglo-Saxon  Interests.     1903. 

-.     Ed  2.     1906. 

Arbitration,  Industrial.     1903. 
Arbitration,  International.     1908. 
Banks  and  Banking.     1904. 

.     First  and  Second  Banks  of  the  U.  S.     1908. 

— ■ — .     Guaranty  of  Bank  Deposits.     1914. 

Boycotts.     1911. 

Budget,  Foreign  Countries.     1904. 

Cabinets.     1903. 

Capital  Punishment.     1912. 

Child  Labor.     1906. 

Chinese  Immigration.     1904. 

Colonization.     1900. 

.     Ed.  2.     1900. 

Commission  Government.     1913. 
Conservation.     1912. 
Constitution,  U.  S.     1903. 
Consuls.     1905. 

.     Ed.  2.     1914. 

Cost  of  Living.     1910. 

.     Additional  References.     1912. 

Currency.     1908. 

Deep  Waterwavs.     1908. 

Eight  Hour  Day.     1908. 

Elections  (Corrupt  Practices).     1908. 

Employers'  Liability.     1906. 

.     1911. 

Far  East.     1904. 

Federal  Control  of  Commerce  and  Corporations.     1903. 

.     Ed.  2.     1904. 

.     Recent  Works.     1907. 

.     Ed.  3.     1913. 

.     Special  Aspects  and  Applications.     In  press. 


104  Law,  Legislative  Reference  and 

intervals  in  Special  Libraries^-  compiled  with  the  co- 
operation of  the  various  state  and  legislati\e  reference 
libraries.     Many  typewritten  or  mimeographed  bibliog- 

Fourteenth  Amendment.     1906. 
Government  Ownership.     1903.     Railroads. 
Immigration.     1904. 

.     Ed.  2.     1905. 

.     Ed.  3.     1907. 

Impeachment.     1905. 

.     Ed  2.     1912. 

Income  Tax.     1907.    (and  Inheritance  Taxation). 

.     Additional  References.     1911. 

Initiative.     1912. 
Insurance.     1906. 

.     Ed.  2.     1908. 

Insurance,  Workmen's.     1908. 
Iron  and  Steel  in  Commerce.     1907. 
Labor  and  Strikes.     1903. 
Monetary  Question.     1913. 
Municipal  Affairs.     1906. 
Negro  Question.     1903. 

.     Ed.  2.     1906. 

Occupation  of  Philippines.     1903. 

.     1905. 

Parcels  Post.     1911. 

Pensions.     Old  Age  and  Civil  Service.     1903. 

Political  Parties.     1907. 

Postal  Savings.     1908. 

.     Additional  References.     1914. 

Primary  Elections.     1905. 

.     Additional  References.     In  preparation. 

Railroads  in  their  Relation  to  the  Government  .   .  .  with  appen- 
dix on  the  Northern  Securities  Case.     1904. 

.     Ed.  2.     1907. 

Railroads,  \'aluation  and  Capitalization.     1909. 

Railroads,  Government  Regulation  in  Foreign  Countries.    1905. 

Reciprocity.     1902. 

.     Ed.  2.     1910. 

.     With  Canada.     1907. 

.     Additional  References.     1911. 

Recognition  in  International  Law.     1904. 
Representation,  Proportional.     1904. 

.     New  Issue.     1914. 

Senators,  Election  of.     1902. 

.     Popular  Election  of.     1904. 

.     Additional  References.     1911. 

Subsidies,  Mercantile  Marine.     1900. 


Municipal  Reference  Libraries  105 

raphies  are  prepared  in  addition  and  are  kept  in  the  files 
of  the  Library. 

.     Ed.  2.     1903. 

.     Ed.  3.     1906. 

.     Additional  References.     1911. 

Sugar.     Economic  Aspects.     1910. 

Supreme  Court.     1909. 

Tariff.     British.     (Chamberlain's  plan).     1904. 

.     Ed.  2.     1906. 

Tariffs.     Foreign  Countries.     1906. 
Trusts.     1900. 

.     Ed.  2.     1902. 

.     Ed.  3.     1907. 

.     Ed.  4.     In  preparation. 

Wages.     1914. 

Wool  with  special  reference  to  the  Tariff.     1911. 
See  also  Borchard,  p.  38. 

"  Lists  in  Special  Libraries  have  appeared  as  follows: 

Cigarette  Smoking.     Sept.,  1911. 

City  Planning.     May,  1912. 

Commerce  Court.     Dec,  1912. 

Compulsory  Voting.     Mar.,  1912. 

Drinking  Cup.     May,  1911. 

Fire  Prevention.     Feb.,  1913. 

Motion  Pictures.     Sept.,  1912. 

Open  Shop.     Oct.,  1911. 

Pardoning  Power.     Feb.,  1912. 

Pensions  for  Mothers,  Motherhood  Insurance,  etc.    Nov.,  1913. 

Preferential  Voting.     April,  1912. 

Public  Service  Rates.     Dec,  1911. 

Scientific  Management  and  Efficiency.     May,  1913. 

Short  Ballot.     June,  1911. 

Societies,  State,  Municipal  and  other  Government  Officials. 
Jan.,  1912. 

Special  Libraries.     Oct.,  1912. 

State  Charities.     April,  1911. 

Trading  Stamp  Business.     Nov.,  1912. 

Train  Crew  Legislation.     June,  1913. 

A  pamphlet  entitled,  "Publications  of  the  Library  Issued  Since 
1897,"  dated  January,  1914,  is  available  for  a  complete  list  of  Library 
of  Congress  Bibliographies  and  other  publications.  A  "Supple- 
mentary List:  Bibliographies  contributed  by  the  Library  to  Pub- 
lications of  other  Departments  or  Institutions"  has  also  been  pub- 
lished, 1913. 

See  also  H.  H.  B.  Meyer,  "Division  of  Bibliography  of  the  Library 
of  Congress  as  a  Clearing- House  for  Bibliographical  Information," 
in  Special  Libraries,  September-October,  1913,  p.  151-52. 


106  Law,  Legislative  Reference  and 

Of  the  Bureau  of  Education's  publications  the  follow- 
ing 5i<//c/in5  may  be  mentioned: 

Statistics  of  State  Universities  .  .  .  1911   (1911-No. 

19). 
Report  on  uniform  Records  and  Reports,  1912  (1912- 

No.3). 
Agricultural   Education  in    Secondarv  Schools,    1911 

(1912-No.  6). 
Agricultural  Instruction  in  High  Schools,  1913  (1913- 

No.  6). 
Status  of  Rural  Education  in  the  United  States,  1913 

(1913-No.  8). 
Agricultural    Instruction  in  Secondarv  Schools,  1912 

(1913-No.  14). 
A  Trade  School  for  Girls  .   .   .     Worcester,  Mass.,  1913 

(1913-Xo.  17). 
German  Industrial   Education  and  its  Lessons  for  the 

United  States,  1913  (1913-No.  19). 
Comparison  of  Public  Education  in  Germany  and  in  the 

United  States,  1913  (1913-No.  24). 

Recent  bibliographical  bulletins  include: 
Education  in  Agriculture  and  Home  Economics  (1912- 
No.  10). 
Child  Study  for  the  Years  1910-1911  (1912-No.  26). 
Exceptional  Children  and  their  Education  (1912-No. 

32). 
Medical  Inspection  and  Health  Supervision  of  School 

Children  .  .  .     1909-1912  (1913-No.  16). 
Industrial,  Vocational  and  Trade  Education  (1913-No. 

22). 
Teaching  Material  in  Government  Publications.  (1913- 
No.  47). 

A  Monthly  Record  of  Current  Educational  Publications 
now  appears  in  the  Bulletin  series  and  a  sub-series  entitled 
Current  Educational  Topics.  An  Educational  Directory  is 
published  annually,  that  for  1912  being  B ulletin  1912-No. 
31. 


Municipal  Reference  Libraries  107 

The  former  Bureau  of  Manufactures  of  the  Depart- 
ment of  Commerce  and  Labor  published  in  the  Tariff 
Series  nearly  40  customs  tariffs  of  the  various  countries 
of  the  globe,  while  changes  in  tariff  rates  and  customs 
regulations  have  been  noted  in  a  separate  series  called 
Foreign  Tariff  Notes. 

Recent  compilations  of  state  laws  issued  by  federal 
ofifices  are  illustrated  by  the  following  publications :  ^^ 
Benefit  Funds. 

U.S.  —  Labor,  Commissioner  of. 
Annual  report,     v.  23.     1908. 
Chap.  IX:   The  legal  status  of  benefit  and  relief 
organizations:    "Statutory   regulations,"  p.  756-87. 
Farmers'  Institutes. 

U.  S.  —  Experiment  Stations  Office. 

Legislation  Relating  to  Farmers'  Institutes  in  the 
United  States,  revised  to  April  1,  1911.  47  p. 
Wash.  1911.     (Bui.  1911). 

Game  Laws. 

U.  S.  —  Biological  Survey. 

Chronology  and  Index  of  the  more  important 
Events  in  American  Game  Protection,  1776-1911. 
62  p.     Wash.  1912.     (Bui.  41). 

Discusses  and  summarizes  state  game  legislation;  current 
game  laws  are  published  each  year  in  one  of  the  Farmers' 
Bulletins. 

Industrial  Education. 

U.  S.  —  Labor,  Commissioner  of. 

Annual  report,  v.  25,  1910.  Chap.  XVI:  Laws 
relating  to  Industrial  Education,  p.  501-18.  Chap. 
XVII :  Selected  Bibliography  of  Industrial  Education. 

"  Some  additional  compilations  will  be  found  noted  in  a  "Selected 
List  of  Recent  Available  Collections  of  Laws  and  Allied  Material," 
by  Miss  Adelaide  R.  Hasse,  in  Special  Libraries  for  June,  1912,  v.  3: 
p.  138-39. 


108  Law,  Legislative  Reference  and 

Nursing. 

U.  S.  —  Education,  Bureau  of. 

Educational  Status  of  Nursing.  97  p.  1912. 
(Bui.  1912:  7.) 

Discusses  state  registration  of  nursing  and  presents  a  tabular 
summary  of  state  laws,  p.  53-60. 

Poisons  and  Drugs. 

U.  S.  —  Public  Health  Service. 

Digest  of  Laws  and  Regulations  to  the  Possession, 
Use,  Sale,  and  Manufacture  of  Poisons  and  Habit- 
forming  Drugs.  278 +v  p.  Wash.  1912.  (Pub- 
lic Health  Bulletin  56,  Nov.,  1912.) 

"Abstracts  and  references  to  Federal,  State  and  Municipal 
laws  and  regulations  .  .  ,"  p.  53-260. 

Public  Drinking  Cup. 

U.  S.  —  Public  Health  Service. 

Common  Drinking  Cups  and  Roller  Towels,  an 
Analysis  of  the  Laws  and  Regulations  Relating 
thereto  in  force  in  the  United  States.  30  +  Iv  p. 
Wash.  1912.     (Pub.  Health  Bui.  57.) 

By  J.  W.  Kerr,  assistant  Surgeon  General  and  A.  A.  Moll. 

Road  Laws. 

U.  S.  —  Post  Roads,  Joint  Committee  on. 
Report  on  Good  Roads.     80  p.     1913. 
Contains  comparative  data  on  foreign  countries  and   the 
several  states  with  a  brief  statement  of  highway  laws. 

School  Laws. 

U.  S.  —  Administration,  Division  of. 

Digest  of  Laws  relating  to  State  Aid  to  High 
Schools.     7  p.     1912.     (Legislative  Circular  No.  13.) 

School  Laws. 

U.  S.  —  Education,  Bureau  of. 

State  School  Systems.  HL  Legislation  and  Judi- 
cial Decisions  relating  to  Public  Education,  Oct.  1, 
1908,  to  Oct.  1,  1909.     1910.     (Bui.  1910:  2.) 

By  Edward  C.  Elliott.  No.  I  is  Bui.  1906:  3;  No.  II  (1907- 
08)  is  Bui.  1908:  7. 


Municipal  Reference  Libraries  109 

Taxation  of  Corporations. 

U.  S.  —  Corporations,  Commissioner  of. 

Taxation  of  Corporations.  4  pts.  Wash.  1910- 
1913. 

Weights  and  Measures. 

U.S.  —  Standards,  Bureau  of. 

State  and  National  Laws  Concerning  the  Weights 
and  Measures  of  the  United  States.  Ed.  2.  564  p. 
Wash.  1912. 

Workmen's  Compensation. 

U.  S.  —  Labor,  Bureau  of. 

Workmen's  Compensation  and  Insurance:  Laws 
and  Bills.     (In  Bui.  22:  97-181.) 

Reviews  the  reports  of  the  Illinois,  Massachusetts,  Minne- 
sota, New  Jersey,  Ohio,  Washington,  and  Wisconsin  Com- 
missions and  gives  the  texts  of  laws  of  California,  Kansas,  New 
Hampshire,  New  Jersey,  Washington,  Wisconsin  with  texts 
of  bills  prepared  by  the  commissions  of  Illinois,  Minnesota, 
and  Ohio,  the  American  Federation  of  Labor  and  the  Ameri- 
can Civic  Federation. 

Bulletin  112  contains  a  tabular  analysis  of  such  laws  in 
this  country  through  1912. 

4.     Indexes,  Check-lists,  and  Sources  for  Current 
Information. 

To  get  the  most  good  out  of  government  documents  one 
should  have  a  thorough  knowledge  of  the  valuable  indexes 
that  have  been  prepared  of  their  contents.  The  many 
department,  set,  and  series  indexes  are  listed  in  Mr. 
Wyer's  larger  pamphlet,  in  Miss  Kroeger's  Guide  and 
Supplement  and  may  be  located  through  the  index  to 
Miss  Everhart's  book  under  the  word  "indexes."  Only 
the  most  important  general  catalogues  and  indexes  of 
the  government  documents  are  here  given. 


110  Law,  Legislative  Reference  and 

Poore,  Benjamin  Perley. 

Descriptive  Catalogue  of  the  Government  Publi- 
lications  of  the  United  States.  1774-1881.  1392  p. 
F.     Wash.  1885.     (Serial  no.  2268.) 

"...  While  its  technical  construction  is  poor  and  it  is 
difficult  to  use  ...  it  is  designed  to  include  every  docu- 
ment .  .  .  whether  in  the  Congressional  Set  or  not.  ...  A 
work  of  very  commendable  zeal  and  industry  and  may  even 
yet  be  consulted  with  profit. 

"The  main  body  of  the  work  is  a  list  of  brief  entries  arranged 
chronologically  under  subject  headings  printed  in  bold  type. 
The  index  of  authors  and  subjects  refers  to  the  page  only  in 
the  body  of  the  work  and  is  very  incomplete."     {Wyer,  1906.) 

Ames,  John  G. 

Comprehensive  Index  to  the  Publications  of  the 
United  States  Government,  1881-1893.  2  v.  Q. 
Wash.  1905.  (58th  Cong.  2d.  Sess.  H.  Doc.  754. 
Serial  no.  4745-46.) 

A  list  by  authors  and  subjects  in  one  alphabet  with  full 
bibliographical  details  and  document  numbers;  three  columns 
to  the  page,  the  first  gives  the  government  author,  the  second 
(the  alphabeted  list)  gives  subject  or  author  and  title,  etc.,  the 
third  gives  the  document  designation,  Congress,  Session,  etc. 
Vol.  2  contains  also  a  personal  index  to  all  individuals  men- 
tioned.    Supersedes  Ames' earlier  volume  covering  1889-1893. 

L^.  S.  —  Documents  Office. 

Catalogue  of  the  Public  Documents  of  .  .  .  Con- 
gress and  all  Departments  of  the  Government,  1893-. 
Wash.  1896-. 

The  so-called  Comprehensive  Index  demanded  by  the  print- 
ing law  of  1895.  One  volume  per  Congress  except  the  54th 
Congress,  which  had  one  volume  each  session.  Dates  cov- 
ered are: 

v.  1:  Mar.  4,  1893-June  30,  1895.     53d  Cong.  Pub.  1896. 

v.  2:  July  1,  1895-June  30,  1896.  54th  Cong.  1st  Sess.  Pub. 
1898. 

V.  3:  July  1,  1896-June  30,  1897.  54th  Cong.  2d.  Sess.  Pub. 
1899. 

V.  4:  July  1,  1897-June  30,  1899.     55th  Cong.  Pub.  1901. 

V.  5:  July  1,  1899-June  30,  1901.     56th  Cong.  Pub.  1903. 

V.  6:  July  1,  1901-June  30,  1903.     57th  Cong.  Pub.  1905. 

V.  7:  Julv  1,  1903-June  30,  1905.     58th  Cong.  Pub.  1908. 

v.  8:  July  1,  1905-June  .30,  1907.     59th  Cong.  Pub.  1910. 

V.  9:  July  1,  19()7-June  30,  1909.     60th  Cong.  Pub.  1912. 


Municipal  Reference  Libraries  m 

"A  straight  dictionary  catalogue  of  authors  and  subjects  and 
a  model  of  complete  accurate  and  intelligent  cataloguing. 
The  annual  reports  of  all  departments  of  the  government  are 
analyzed.  This  is  a  minute,  complete  key  to  the  great  store- 
house of  information  not  only  in  the  documents  of  the  Con- 
gressional Set  but  in  those  printed  independently  by  the 
different  departments  .  Supplemented  by  the  Monthly 
Catalogue.  '     (Wyer,  1910.)  "^ 

.     Index  to  the  Reports  and  Documents  of 

.  ..  Congress  .   .   .  with   the  numerical    Lists   and 
Schedule  of  Volumes,  being  the  "Consolidated  Index" 
provided  for  by  the  Act  of  January  12,  1895      Dec 
1895-   V.  1-  O.     Wash.  1897-.  '  ' 

One  volume  for  each  session  of  Congress;  volume  17  cover- 
ing the  61st  Cong.  3d  Sess.  (Dec.  5,  1910-Mar.  4,  1911)  nub- 
lished  1912.  ^ 

"Its  purpose  is  to  supplement  and  complete  the  Congressional 
Record  by  indexing  those  papers  which  Congress  orders  printed 
separately  from  it  and,  of  course,  includes  onlv  the  documents 
in  the  Congressional  Set. 

"Being  fundamentally  a  subject-index,  personal  author 
entries  do  not  appear,  but  the  names  of  Congressmen  are 
prominent,  with  a  record  of  each  one's  activity  in  the  work  of 
the  session,  bills  introduced,  pension  claims  put  through,  etc 
.  .  .  gives  a  numerical  list  in  four  separate  arrangements  of 
Senate  Documents,  Senate  Reports,  House  Documents,  House 
Reports,  giving  in  each  case  the  number,  title  or  subject  and 
serial  number.  ' 

"It  is  from  the  schedules  in  the  back  of  this  index  that 
depository  libraries  maintaining  the  serial  set  must  now  get 
the  serial  numbers  for  current  volumes,  no  longer  affixed  bv 
the  Documents  Office."     {Wyer,  1906,  1910). 

.  Monthly  Catalogue  of  United  States  Pub- 
he  Documents,  1895-,  v.  1-,  Wash.  1895-. 

Originally  published  without  the  word  Monthly  in  the  title 
Now  indexed  semi-annually  (in  December)  and  at  the  end 
of  the  fiscal  year,  June  30. 

A  complete  monthly  list  of  all  the  current  publications  of 
the  government  including  the  congressional  documents,  com- 
mittee reports  and  hearings,  department,  bureau,  and  com- 
mission publications,  arranged  alphabetically  by  bureaus  and 
divisions  under  departments  and  independent  offices,  alpha- 
betically listed.  Information  is  given  as  to  how  documents 
are  to  be  obtained  and  Library  of  Congress  card  numbers  arc 
attached  in  many  cases. 


112  Law,  Legislative  Reference  and 

.  Tables  of  and  annotated  Index  to  the  Con- 
gressional Series  of  United  States  Public  Documents. 
796  p.  Q.     Wash.  1902. 

Published  as  part  2  of  a  projected  complete  list  of  the  pub- 
lications of  the  United  States  government  to  appear  in  three 
parts  and  then  consolidated  into  one  volume  with  a  general 
index.  This  second  part  gives  in  the  first  100  pages  prac- 
tically a  revision  of  the  2d  ed.  of  the  Checklist,  correcting 
numerous  errors  in  that  edition  and  covering  the  15th  to  the 
52d  Congress.  The  rest  of  the  volume  is  an  alphabetical  index 
by  author,  title,  and  subject  to  the  congressional  documents  for 
the  same  congresses. 

As  originally  planned  part  1  was  to  cover  the  first  14  con- 
gresses, and  part  3  the  publications  of  the  various  govern- 
ment departments,  bureaus,  etc.,  printed  without  congressional 
numbers.  Parts  1  and  3  will  not  now  be  published  as  the 
new  3d  edition  of  the  Checklist  covers  the  ground  they  were 
intended  to  cover. 

.     Checklist  of  United  States  Public  Docu- 


ments 1789-1909,  Congressional  to  Close  of  the  Six- 
tieth Congress,  Departmental  to  End  of  Calendar 
Year  1909.  Ed.  3  rev.  Vol.1.  xxi,1707p.  Wash. 
1911. 

Vol.  1  presents  the  lists  of  congressional  and  departmental 
publications  arranged  by  the  classification  adopted  by  the 
office  of  the  Superintendent  of  Documents;  Vol.  2  will  be  a 
detailed  index  to  the  publications  listed  in  volume  1. 

The  first  edition  of  the  Checklist  in  1892  was  unimpor- 
tant and  superseded  by  the  second  edition  in  1895,  which  was 
the  first  really  useful  key  to  the  government  documents  and  in 
it  was  introduced  the  serial  numbering  for  the  volumes  in  the 
Congressional  Set. 

The  present  third  edition  will  long  remain  the  standard  list. 

As  the  legislative  reference  library  is  a  bureau  of  infor- 
mation on  current  legislative  questions  it  is  of  impor- 
tance to  keep  abreast  of  the  output  of  the  government 
printing  office.  The  Monthly  Catalogue  of  the  Superin- 
tendent of  Documents,  the  only  complete  official  list  of 
these  publications,  should  be  carefully  and  regularly 
scanned.  The  "Price  Lists"  of  documents  on  special 
subjects  issued  by  the  same  office  are  valuable.     Notices 


Municipal  Reference  Libraries  113 

in  newspapers  of  important  documents  will  often  pre- 
cede their  arrival  and  occasionally  an  order  to  print 
seen  in  the  Congressional  Record  will  give  warning  of 
some  important  publication  soon  to  be  issued.  As  a 
commercial  venture  there  is  published  weekly  by 
Mary  C.  Greathouse  of  Washington,  D.  C,  a  four  to 
six  page  leaflet  entitled,  Government  Publications,  now  in 
its  fourteenth  volume,  in  which  appear  notices  not  only 
of  important  United  States  government  documents, 
but  of  American  municipal  and  state  publications,  and 
occasional  lists  for  Great  Britain  and  Canada.  Each 
issue  contains  also  about  a  page  of  "Civil  Service  Co- 
operators'  News"  with  frequent  lists  of  civil  service 
examinations  and  notes  of  "Coming  Events,"  largely  a  list 
of  associations'  meetings,  local,  state,  national,  and 
international. 

Of  the  lists  of  documents  printed  in  various  journals 
those  published  in  the  American  Political  Science  Review, 
American  Economic  Review,  A. L.  A.  Book  List,  and  Special 
Libraries  are  of  the  most  value  in  this  work.  The  "Re- 
cent Government  Publications  of  Political  Interest" 
department  in  the  American  Political  Science  Review 
is  edited  by  Mr.  Carl  Hookstadt  of  the  Library  of 
Congress.  It  includes  among  the  United  States  docu- 
ments committee  hearings  and  covers,  in  addition  to 
the  United  States,  publications  of  the  separate  states, 
foreign  countries,  and  documents  of  international  con- 
gresses. The  Readers'  Guide  to  Periodical  Literature  — 
Abridged  (formerly  The  Eclectic  Library  Catalogue)  issued 
quarterly  by  the  H.  VV.  Wilson  Co.,  indexes  currently 
a  carefully  selected  list  of  the  United  States  government 
documents  deemed  most  useful  in  a  small  library  and 
prints   a   list   of    those   indexed.      The  Readers    Guide 


114  Law,  Legislative  Reference  and 

itself  regularly  includes  the  Farmers'  Bulletins  and  Year- 
book of  the  Department  of  Agriculture,  and  the  Bulletins 
of  the  Bureau  of  Education  and  the  Department  of 
Labor  in  its  monthly  numbers.  The  U.  S.  Catalogue  of 
Books  in  Print  —  Jan.  1,  1912,  and  its  supplement 
published  by  the  H.  W.  Wilson  Co.,  have  listed  a 
number  of  government  publications  noting  the  price 
at  which  they  may  be  obtained  from  the  Superintendent 
of  Documents  at  Washington. 
5.     Foreign  Documents. 

From  the  documents  of  foreign  countries  a  selection 
should  be  made  of  those  bearing  on  any  important  phase 
of  legislation.  The  British  parliamentary  papers  are 
replete  with  invaluable  data.  In  numerous  fields,  par- 
ticularly that  of  social  legislation,  Germany,  England, 
France,  Australia,  and  Canada  are  ahead  of  the  United 
States  and  have  already  published  investigations  into 
the  actual  workings  of  laws  which  only  a  few  of  the 
various  American  states  are  even  considering  as  yet. 
Foreign  documents  will  have  to  be  purchased  in  most 
cases. 

The  British  "Blue  Books,"  or  parliamentary  papers 
are  noted  in  the  Quarterly  List  of  Parliamentary  Publi- 
cations issued  by  H.  M.  Stationery  Office,  a  list  which  is 
cumulated  annually  and  indexed.  For  "Department 
Publications"  there  is  the  Quarterly  List  of  Official  Pub- 
lications issued  by  H.  M.  Stationery  Office.  The  two 
most  useful  indexes  to  English  parliamentary  papers  are 
Hilda  Vernon  Jones's  Catalogue  of  Parliamentary  Papers, 
1801-1900,  with  a  few  of  earlier  Date,^  and  her  Catalogue 
of  Parliamentary  Papers,  1901-1910."     The  publications 

"  London,  P.  S.  King,  n.  d. 
«»  London,  P.  S.  King,  1912. 


Municipal  Reference  Libraries  115 

themselves  can  all  be  purchased  directly  or  through  any 
booksellers  from  Wyman  &  Sons,  Fetter  Lane,  London, 
E.  C.  Selections  are  frequently  advertised  by  book- 
dealers  with  their  other  publications,  notably  by  P.  S. 
King  &  Son  of  London. 

A  list  of  principal  publications  of  the  Board  of  Trade 
appears  at  the  beginning  of  each  issue  of  its  weekly 
Journal,  and  an  additional  short  list  of  "Government 
Publications"  is  a  regular  feature.  This  journal  is  quite 
similar  to  our  own  Daily  Consular  and  Trade  Reports, 
but  a  little  broader  in  scope. 

Canadian  publications  are  made  known  officially  in 
the  Price  List  issued  at  intervals  by  the  King's  Printer 
and  Controller  of  Stationery.  It  covers  the  statutes 
of  Canada,  the  public  and  private  acts  of  the  Canadian 
ParUament,  and  the  departmental  reports.  The  Bulle- 
tin de  L Office  Du  Travail  publishes  a  list  of  the  publi- 
cations of  the  French  Ministere  du  Travail  et  de  la 
Prevoyance  Sociale. 

Numerous  comparative  law  studies  are  also  found  in 
the  government  publications  of  foreign  countries.  Each 
issue  of  the  Journal  of  the  Society  of  Comparative 
Legislation  devotes  a  section  in  its  "Notes"  to  com- 
ment on  Comparative  Law  in  the  Blue-Books,  and  such  a 
title  as  the  following  is  typical  of  many. 

Great  Britain  —  Board  of  Trade. 

.  .  .  Strikes  and  Lockouts  .  .  .  Memoranda  .  .  . 
relating  to  the  Text  and  Operation  of  certain  Laws  in 
the  British  Dominions  and  Foreign  Countries  affect- 
ing Strikes  and  Lockouts  with  special  Reference  to 
PubHc  Utility  Ser^dce.  162  p.  1912. 
United  States  legislation  digested  on  p.  107-16. 

The  French  have  created  an  "office  of  foreign  legis- 
lation and  international  law"  directly  under  the  Keeper 


116  Law,  Legislative  Reference  and 

of  the  Seals  in  the  Department  of  Justice,  an  office  which 
was  decreed  July  21,  1910,^^  and  which  superseded  the 
former  Comite  de  Legislation  established  by  M.  DuFaure 
in  connection  with  the  French  Ministry  of  Justice. 

Comparative  law  publications  of  foreign  governments 
similar  to  those  of  the  United  States  government  in  the 
fields  of  labor,  education,  tariffs,  etc.,  are  illustrated  by 
the  excellent  and  comprehensive  Anniiaire  de  Legislation 
du  Travail  of  the  Belgian  Labor  Office  and  the  Bulletin  de 
Statistique  et  de  Legislation  of  the  French  Ministry  of 
Finance  which  covers  internal  taxation.  These  are  but 
two  of  the  many  examples  mentioned  in  Professor 
Dodd's  careful  survey  in  1906^^  of  the  field  covered  by 
comparative  legislation  publications. 

A  number  of  foreign  periodicals  publish  lists  of  current 
documents  and  the  journals  of  various  societies  abroad 
include  in  many  instances  lists  of  books  and  documents 
received  by  the  library  of  the  society.  In  this  class 
come  the  Journal  of  the  Royal  Statistical  Society  of 
London,  the  Journal  of  the  Societe  de  Statistique  de 
Paris,  of  the  Institute  of  Bankers,  and  the  Institute  of 
Actuaries,  both  of  London. ^^ 

(b)     State  Documents. 
1.     Bibliographical  Statement. 
American    state   documents    have    been    discussed    a 
number  of  times  in  the  proceedings  of  the  American 

^  Cf.  "The  French  Government  and  Comparative  Legislation"  in 
the  Journal  of  the  Society  of  Comparative  Legislation,  N.  S.  12: 
175-178,  July,  1911. 

"  W.  F.  Dodd,  An  Index  of  Comparative  Legislation  in  the  Amer. 
Pol.  Science  Rev.  1 :  62-75,  Nov.  1906. 

^*  The  publication  and  distribution  of  the  official  documents  of 
foreign  governments  is  the  subject  of  a  work  now  in  preparation 
by  Mr.  E.  J.  Reece  of  the  University  of  Illinois  Library  School. 


Municipal  Reference  Libraries  117 

Library  Association,  the  reports  of  the  Association's 
Committee  on  public  documents,  by  the  National  Asso- 
ciation of  State  Libraries,  and  in  articles  in  the  Library 
Journal  and  Public  Libraries.  The  "References"  pre- 
ceding the  discussion  of  government  documents  in 
Kroeger's  Guide  contain  a  number  on  state  publications. 
For  a  partial  list  of  bibliographies  of  state  documents, 
see  Kroeger,  p.  97-98.  Since  the  Guide  was  published 
a  number  of  state  libraries  and  library  commissions 
have  issued  additional  check-lists  or  bibliographies  of 
their  state  documents,  some  relating  merely  to  current 
documents,  such  as  the  notes  on  state  documents  of 
interest  to  libraries  that  appear  in  New  York  Libraries 
and  in  News  Notes  of  California  Libraries.  A  complete 
list  of  these  may  be  expected  in  a  pamphlet  on  state 
documents  now  in  preparation.^^ 

The  latest  and  the  most  comprehensive  data  regarding 
the  distribution  and  publication  of  the  state  documents 
appears  in  a  tabular  statement,  with  notes,  to  be  pub- 
lished by  Mr.  William  R.  Reinick,  formerly  in  charge  of 
the  documents  department  of  the  Philadelphia  Public 
Library.'^''  An  excellent  brief  and  critical  survey  of  the 
scope  of  state  documents  is  Mr.  William  L.  Bailey's 
"Bibliographical  Note"  (p.  465-70)  in  Readings  on 
American  State  Government,  edited  by  Dr.  Paul  S.  Reinsch 
of  the  University  of  Wisconsin  (Ginn.  &  Co.,  Boston, 
cl911). 

2.     Illustrative  Documents. 

State    publications   in    addition    to  the  constitutions, 
laws,  bills,  court  reports,  etc.,  alluded  to  in  earlier  pages 

"  By  Mr.  E.  J.  Reeceof  the  University  of  Illinois  Library  School. 
'"  Lib.  Jr.     1914.  (?) 


118  Law,  Legislative  Reference  and 

regularly  include  legislative  journals  and  manuals,  the 
reports  and  other  publications  of  departments,  bureaus, 
boards,  and  commissions,  educational  and  eleemosynary 
institutions,  and  state  associations.  However,  as  the 
legislative  reference  library  is  usually  a  part  of,  or  closely 
associated  with  the  state  library  which  should  specialize 
in  state  official  literature,  it  need  not  attempt  to  dupli- 
cate extensively  in  this  field.  For  its  special  purposes 
its  select  library  should  secure  the  laws  in  force  to  date, 
legislative  manuals,  bills  on  subjects  of  immediate  local 
interest,  the  pamphlet  editions  of  governors'  messages, 
important  veto  messages,  the  reports  of  special  investi- 
gations authorized  by  the  legislature,  and  any  other  pub- 
lications offering  data,  especially  comparative  data  on 
legislation. 

The  publications  of  legislative  reference  bureaus  ^^  are 
of  great  importance  in  this  field,  and  afford,  in  fact, 
almost  the  only  opportunity  at  present  for  a  compara- 
tive study  of  American  state  legislation  on  any  con- 
siderable number  of  subjects.  California,  Connecticut, 
Indiana,  Iowa,  Massachusetts,  Michigan,  Nebraska, 
New  York,  North  Dakota,  Ohio,  Pennsylvania,  Rhode 
Island,  South  Dakota,  Texas,  Vermont,  and  Wisconsin 
have  already  published  matter  useful  in  this  work  all 
of  which  should  be  secured  by  each  legislative  reference 
library. 

The  separate  titles  of  these  publications  are  enumerated 
in  the  appendix,"  but  special  mention  must  be  made  of 
the    Year  Book  of  Legislation  of  the  New  York  bureau 

'1  Cf.  "List  of  Publications  of  Legislative  Reference  Departments," 
by  Grace  Sherwood  in  Special  Libraries,  3:  201-04,  Dec,  1912;  an 
earlier  list  appeared  in  Dr.  Putnam's  Report  on  Legislative  Refer- 
ence Bureaus.     (62d  Cong.  1st  Sess.  Sen.  Doc.  7,  p.  16-18.) 

"  p.  379-S3. 


Municipal  Reference  Libraries  119 

which  occupies  a  unique  place  in  the  field  of  compara- 
tive state  legislation. 

Since  1890  the  New  York  State  Library  has  been  pub- 
lishing a  series  of  "Legislation  Bulletins."  First,  there 
has  appeared  each  year  an  Index  to  Legislation,  a  minutely 
clasged  index  to  the  new  general  and  permanent  laws 
of  all  the  states,  with  references  to  state  and  United 
States  Supreme  Court  Decisions  declaring  laws  uncon- 
stitutional. Votes  on  constitutional  amendments  and 
references  to  constitutional  conventions  are  given  and 
important  provisions  of  new  constitutions  are  summarized . 
In  addition  city  charters  and  local  acts  of  general  im- 
portance receive  notice.  This  is  classified  by  a  system 
of  key  numbers,  each  number  signifying  a  phase  of 
legislation  and  having  the  same  significance  year  after 
year.  The  classification  scheme  was  published  in  1902  as 
Bulletin  22  x. 

Another  regular  bulletin  of  the  series  is  the  Annual 
Review  of  Legislation,  1901  to  date,  containing  contri- 
butions from  leading  specialists  in  all  parts  of  the  country 
reviewing  governors'  recommendations  and  the  laws 
enacted  each  year  in  such  fields  as  Labor,  Crimes  and 
Offences,  the  Family,  Forestry,  Vocational  Education, 
PubHc  Utilities,  Municipal  Government,  State  Finance, 
Local  Finance,  etc.  The  Review  for  1907-08  contains 
thirty-seven  contributions  on  as  many  separate  topics. 

The  third  regular  bulletin  is  an  annual  topical  Digest 
oj  Governors  Messages  for  all  the  states  and  of  related 
topics  in  the  President's  Message.  The  classification 
scheme  employed  is  that  of  the  Index,  enabling  easy 
comparison  by  numbers  between  laws  actually  passed 
and  legislation  recommended. 


120  Law,  Legislative  Reference  and 

Bulletin  26  was  an  Index  of  New  York  Governors' 
Messages  1777-190L^^  Occasional  bulletins  on  other 
topics  have  been  included,  for  example  No.  30,  1906, 
Legislative  Reference  Lists  (Life  Insurance,  Direct  Nomina- 
tions, Employment  of  Blind,  and  Inheritance  Tax). 
Five  monographs  have  been  issued;  Bulletin  No,  8, 
State  Finance  Statistics  1890  and  1895;  No.  12,  Trend  of 
Legislation  in  the  United  States  (1900);  No.  14,  Taxation 
of  Corporations  in  New  York,  Massachusetts,  Pennsyl- 
vania and  New  Jersey  (May,  1901) ;  No.  34,  A  Summary 
of  Compulsory  Attendance  and  Child  Labor  Laws  (1907), 
and  No.  40,  American  Ballot  Laws  1888-1910  (1911). 
The  Bulletins  of  each  year  bound  together  make  what 
has  been  known  since  1903  as  the  Annual  Year  Book  of 
Legislation. 

Beginning  with  1907-08  the  Review  changed  to  a 
biennial  publication,  as  the  majority  of  states  hold 
biennial  sessions.''^ 

Among  other  recent  state  publications,  valuable  par- 
ticularly in  the  field  of  comparative  legislation  either 
because  they  discuss  the  actual  administration  of  exist- 
ing laws,  show  conditions  which  demand  new  legislation, 
or  because  they  present  compilations  of  the  laws  of  sev- 
eral states  on  a  single  topic,  are  the  following: 
Cold  Storage. 

Massachusetts — Cold  Storage  of  Food,  Commission 
to  Investigate. 

Report  .  .  .  January,  1912.  308  p.   Boston.  1912. 
(House  No.  1773.) 

"  Attention  may  here  be  called  to  Charles  Z.  Lincoln's  Messages 
from  the  Governors  of  New  York  published  in  11  volumes.  Albany, 
N.  Y.,  1910,  covering  messages  to  1906.  Footnotes  indicate  the 
outcome  of  legislation  recommended  and  measures  vetoed. 

''*  MSS.  for  legislative  bulletins  covering  1909-1910  were  con- 
sumed in  the  fire  which  destroyed  the  State  Library  in  1911.  It  is 
planned  to  cover  these  years  later. 


Municipal  Reference  Libraries  121 

This  report  considers  the  nature  and  function,  origin,  and 
present  status  of  cold  storage,  its  influence  on  health  and 
prices;  a  discussion  of  existing  legislation,  its  enforcement, 
a  critical  commentary  on  proposed  legislation  in  Massachu- 
setts, and  a  summary  of  conclusions  and  recommendations. 

Appendixes  contain  (a)  draft  of  bill,  p.  203-07;  (b)  cold 
storage  acts  of  other  states,  p.  208-23;  (c)  rules  and  regula- 
tions of  state  health  boards,  p.  224-29;  (d)  the  Canadian 
act,  p.  230-34  and  (e-i)  various  statistics  and  other  reports 
on  the  subject. 

Co-operation  and  Marketing. 

Wisconsin  —  Public  Affairs,  State  Board  of. 

Report  upon  Co-operation  and  Marketing.  4  pts. 
1913. 

Contents:  1.  Agricultural  co-operation.  2.  Co-operative 
credit.  3.  Municipal  markets.  4.  Distributive  or  store  co- 
operation. 

Comparative  studies,  each  with  a  bibliography. 

Election  Laws. 

Pennsylvania  —  Election  Laws,  Commission  to  Revise 
and  Codify. 

Condensed  Memorandum  of  the  election  laws  of 
the  various  states.     January  1,  1913. 

A  tabular  statement  showing  the  method  of  registration  and 
nomination,  form  of  ballot,  on  what  questions  women  may  vote, 
date  of  adoption  of  woman  suffrage;  what  states  have 
initiative,  referendum,  and  recall  and  when  and  where  they 
were  adopted;  whether  there  are  presidential  primaries  and 
senatorial  preference  votes. 

Garnishment  of  Wages. 

Milwaukee  —  Economy  and  Efficiency,  Bureau  of. 
Garnishment  of  Wages. 

Published  by  the  Wisconsin  Bureau  of  Labor.  Gives  a 
tabular  digest  of  state  laws  with  references  to  statutes. 

Income  Tax. 
Wisconsin — Tax  Commission. 

Report  on  the  Revenues  and  Expenditures  incident 
to  the  Income  Tax.     10  p.     Madison.     1913. 

"An  interesting  study  of  the  cost  to  a  state  of  a  two  years' 
administration  of  an  income  tax  law."     Spec.  Libs. 


122  Law,  Legislative  Reference  and 

Insane,  Care  of. 

Illinois — Public  Charities,  Board  of. 

Report.     125  p.     1908. 

Contains  the  law  and  usage  relating  to  pay  patients  in 
American  hospitals  for  the  insane  and  a  digest  of  the  laws  of 
all  the  states  and  the  Province  of  Ontario  relating  to  the  care 
of  the  insane  and  payment  therefor. 

Occupational  Diseases. 

Illinois  —  Occupational  Diseases,  Commission  on. 
Report.     January,  1911.     219  p.     1911. 
A    comprehensive    document    including    expert    testimony 
regarding  dangerous  occupations  of  many  kinds,  suggestions 
for  new  legislation,  and  comparative  texts  of  existing  law,  both 
American  and  European,  with  occasional  footnotes. 

Social  Conditions. 

New  Jersey  —  Charities  and  Corrections,  Department 

of. 

Research  Work  in  New  Jersey,  by  Elizabeth  S. 
Kite.     27  p.     Trenton.     1913. 

Social  research  studies  of  various  families  and  situations  in 
the  Pine  Belt. 

School  Tax  Laws. 

Illinois  —  Educational  Commission. 

Report.     126  p.     Springfield.     1911. 
Contains  a  summary  of  the  laws  of  all  the  states  on  taxation 
systems  for  schools. 

State  Insurance. 

Washington  —  Industrial  Insurance  Department. 

First  Annual  Report.     516  p.     Olympia.      1913. 
A  comprehensive  report  by  the  first  state  to  adopt  state 
insurance. 

Taxation  of  Corporations. 

Connecticut  —  Taxation  of  Corporations  Paying  Taxes 
to  the  Stale,  Special  Commission  on. 
Report.  238  p.  Hartford.  1913. 
Comparative  experience  is  given  special  attention  in  chapter 
I,  Sec.  Ill,  "Experience  of  other  States  in  Taxing  Public  Ser- 
vice Corporations,"  p.  14—16,  and  in  appendix  II,  "Methods 
of  Taxing  Public  Service  Corporations  in  Other  States," 
p.  192-228,  an  analysis  of  laws. 


Municipal  Reference  Libraries  123 

Water  Laws. 

Wisconsin  —  Water  Powers,  Forestry  and  Drainage, 
Special  Legislative  Committee  on. 
Report.     Madison.     1910. 

Exhibit  15  in  part  I  gives  the  constitutional  provisions  of  all 
the  states  relating  to  navigable  waters. 

Workmen's  Compensation  Laws. 

Iowa  —  Employers'  Liability  Commission. 

Workmen's  Compensation  Laws.  13  p.  Februarv^ 
1912. 

A  synopsis  of  the  laws  of  Ohio,  New  Jersey,  Washington, 
Wisconsin,  California,  Illinois,  Kansas,  Massachusetts,  Nevada, 
and  New  Hampshire. 

A  collection  of  state  legislative  manuals  (blue-books 
or  registers)  should  be  available  for  the  great  amount  of 
general  statistical  and  other  information  they  contain, 
and  for  the  opportunity  they  provide  for  a  comparative 
study  of  legislative  procedure.  Some  legislative  manuals, 
however,  omit  the  rules  of  the  legislature  entirely,  for 
example.  New  York,  California,  and  Minnesota.  Prob- 
ably the  most  comprehensive  single  volume  manual  is 
SmuU's  Legislative  Hand-Book  and  Manual  of  the  State 
of  Pennsylvania,  1912  (1082  p.).  Those  of  California, 
Michigan,  and  Minnesota  are  worthy  of  special  mention 
for  the  great  amount  of  data  presented. 

Oklahoma  offers  something  unusual.  Its  Red  Book, 
1912,  was  issued  in  two  thick  volumes,  in  the  second  of 
which  appears  most  of  the  information  usually  found  in 
legislative  manuals.  Volume  one  begins  with  such  cus- 
tomary matter  as  the  Declaration  of  Independence, 
Articles  of  Confederation,  the  United  States  Constitu- 
tion, laws  as  to  presidential  succession  and  citizenship, 
the   Oklahoma   Constitution,    Prohibition,   and   general 


124  Law,  Legislative  Reference  and 

election  laws.  Then  follows  ^^  a  collection  of  Indian 
nations'  constitutions,  five  in  number,  embracing  the 
Cherokee,  Choctaw,  Muscogee  (Creek),  Chickasaw,  and 
Osage  Nations. 

Next^^  comes  the  text  of  sixty-nine  Indian  treaties, 
patents,  agreements,  etc.,  presented  chronologically  — 
truly  a  notable  collection  of  historical  records,  worthy 
of  preservation  in  the  first  legislative  manual  of  a  state 
which  has  within  its  limits  the  descendants  or  remnants 
of  no  less  than  fifty  tribes  and  nations  of  Indians.  A 
study  of  these  early  documents  will  give  the  legislator 
of  the  present  day  not  only  v^aluable  and  interesting 
information  regarding  the  political  and  racial  relation- 
ships of  recent  generations  of  a  large  number  of  inhabi- 
tants of  his  state,  but  will  enable  him  to  interpret  with 
clearer  understanding  the  present  needs  of  his  people  in 
terms  of  beneficial  legislation. 

The  hearings  of  regular  legislative  committees  are  not 
usually  published ;  the  same  is  true  for  testimony  taken 
during  investigations  by  special  legislative  committees, 
except  in  investigations  of  unusual  importance  or  of 
unusual  general  interest. 

Briefs  of  counsel,  the  printed  papers  and  arguments  of 
attorneys  in  supreme  court  cases,  though  state  docu- 
ments of  importance,  have  been  found  of  relatively  infre- 
quent use  in  legislative  reference  work. 

Among  the  regular  publications  of  state  offices  the 
bulletins  of  the  labor  and  health  departments,  and 
the  annual  reports  of  such  offices  or  officers  as  the  civil 
service  commission,  superintendent  of  education,  board 
of  charities,  and  the  railroad  and  public  service  commis- 

'*  p.  200-44. 
'« p.  245-676. 


Municipal  Reference  Libraries  125 

sions  will  be  found  of  special  value  in  connection  with 
legislation.  The  report  of  each  administrative  official 
may  be  expected  to  contain  recommendations  for  new 
legislation  affecting  his  department  and  perhaps  a  com- 
parison with  the  work  of  similar  offices  in  other  states. 

3.     Indexes,  Check-lists,  and  Sources  for   Current 
Information. 

The  bibliography  of  state  documents  is  a  field  in  which 
much  yet  remains  to  be  done  but  one  in  which  recent 
years  have  witnessed  marked  activity  and  some  particu- 
larly noteworthy  productions. 

The  first  substantial  effort  at  a  collective  list  was: 

Bowker,  Richard  Rogers. 

State  Publications;  a  Provisional  List  of  the  Offi- 
cial Publications  of  the  several  States  of  the  United 
States  from  their  Organization.  4  v.  N.  Y.  Pub- 
lisher's Weekly.     1899-1909. 

V.  1,  New  England  States;  v.  2,  North  Central  States; 
V.  3,  Western  States  and  Territories;   v.  4,  Southern  States. 

A  check-list  with  entries  arranged  alphabetically  by  the 
issuing  office  or  officer,  based  on  earlier  lists  first  published  as 
appendixes  to  the  American  Catalogue,  1876-84,  1890-95. 

The  most  comprehensive  index  yet  prepared  in  the 
field  of  state  documents  and  one  destined  ever  to  hold  a 
unique  place  in  American  bibliography  is  Publication  85 
of  the  Carnegie  Institution  at  Washington,  D.  C,  the 
work  of  Miss  Adelaide  R.  Hasse  of  the  Documents 
Department  of  the  New  York  Public  Library.  The  fol- 
lowing statement  in  regard  to  it  is  taken  from  the  list  of 
publications  of  the  Institution.  It  may  be  added  that 
constitutions,  laws,  legislative  journals,  and  court  re- 
ports are  not  included  in  the  materials  indexed. 


126  Law,  Legislative  Reference  and 

Hasse,  Adelaide  R. 

Index  of  Economic  Material  in  Documents  of  the 
States  of  the  United  States,  prepared  for  and  under 
the  Direction  of  the  Department  of  Economics  and 
Sociology  of  the  Carnegie  Institution  at  Washington. 

(Maine)  (1820-1904),  95  pages $0.75 

(New  Hampshire)  (1789-1904),  66  pages 0.50 

(Vermont)  (1789-1904),  71  pages 0.50 

(Massachusetts)  (1789-1904),  310  pages 2.25 

Banks  14  pp.,  education  15  pp.,  insurance  15 
pp.,  charities  and  corrections  15  pp.,  rail- 
roads (Troy  and  Greenfield  R.  R.  and  Tunnel 
213  entries)  33  pp.,  vital  statistics  16  pp. 

(Rhode  Island)  (1789-1904),  95  pages 0.75 

(New  York)  (1789-1904),  553  pages    3.75 

Banks  34  pp.,  canals  34  pp.,  insurance  19  pp., 
charities  and  corrections  53  pp.,  railroads 
19  pp.,  taxation  36  pp. 

(California)  (1849-1904),  316  pages 2.25 

Agriculture  36  pp.,  climate  13  pp.,  education 
17  pp.,  charities  and  corrections  24  pp., 
natural  resources  26  pp. 

(Illinois)  (1809-1904),  393  pages    5.00 

Agriculture  71  pp.,  banks  11  pp.,  canals21  pp., 
education  23  pp.,  charities  and  corrections 
30  pp.,  railroads  31  pp.,  taxation  13  pp. 

(Kentucky)  (1792-1904),  452  pages 5.00 

(Delaware)  (1789-1904),  137  pages    1.50 

(Ohio)  (1787-1904).  2  v 14.00 

In  preparing  the  above  volumes  the  term  economic  has 
been  liberally  interpreted.  The  index  embraces  reports  of 
the  boards  of  agriculture,  charities  and  corrections,  educa- 
tion, public  works  and  public  health,  banking,  insurance, 
railroad  and  tax  commissions,  bureaus  of  labor  and  vital  statis- 
tics, climate  and  crop  bulletins,  geological  surveys,  fish,  game, 
and  forest  commissions,  auditors'  and  treasurers'  reports, 
immigration,  sewerage  and  water-supply,  roads,  canals  and 
river  conservancy,  governors'  messages,  and  reports  of  attor- 
neys general.  Particular  care  has  been  taken  in  reading  the 
above  mentioned  reports  to  note  recommendations,  suggestive 
comment  and  especially  the  character  of  the  tabulations.  A 
check-list  of  the  entire  file  of  reports  accompanies  each  subject. 
The  indexed  material  is  arranged  chronologically  under  each 
subject.  Thus  the  student  is  able  to  trace  the  historical 
development  of  each  economic  subject  as  it  is  reflected  in  the 
documents  of  an   individual   state.     The   work   is   published 


Municipal  Reference  Libraries  127 

by  states,  a  single  volume  to  a  state,  and  is  designed  to  cover 
the  period  from  the  adoption  of  the  Federal  Constitution  to  the 
close  of  the  year  1904.  It  is  being  done  by  Adelaide  R. 
Hasse  of  the  New  York  Public  Library. 

A  number  of  states,  generally  through  the  state  library 
or  library  commission,  have  issued  check-lists  of  their 
documents.  A  partial  list  of  these  is  given  in  Kroeger's 
Guide "  and  a  more  complete  list  may  be  expected  in  a 
handbook  of  state  documents  in  preparation  by  Mr. 
E.  J.  Reece  of  the  University  of  Illinois  Library  School. 
Lists  of  current  documents  are  sometimes  issued  by  the 
Secretary  of  State,  as  in  Illinois,  or  published  in  the 
Legislative  Manual,  as  in  Pennsylvania.  State  Library 
or  Library  Commission  publications  such  as  New  York 
Libraries,  News  and  Notes  of  California  Libraries,  Texas 
Libraries,  and  a  number  of  others,  frequently  note  or 
comment  upon  current  documents. 

The  most  complete  official  list  of  all  such  publications 
is  the  Monthly  List  of  State  Publications''^  issued  by  the 
Library  of  Congress  since  January,  1910.  The  Library 
of  Congress  endeavors  to  secure  all  the  official  publica- 
tions issued  under  state  authority,  and  this  is  the  list  of 
documents  it  receives  each  month.  The  states,  terri- 
tories, and  insular  possessions  are  arranged  alphabetically, 
the  publications  of  each  are  then  grouped  according  to 
the  issuing  authority,  thus  (i)  Legislature,  (ii)  Depart- 
ments, bureaus,  boards,  commissions,  (iii)  Courts,  (iv) 
Individual  institutions  and  societies.  The  separate  entries, 
in  addition  to  presenting  the  usual  bibliographical  details, 
are  accompanied  by  descriptive  notes  indicating  the 
important  subjects  discussed  in  the  annual  reports  and 

"  Pages  97-98. 

™  Fifty  cents  per  year;  the  Superintendent  of  Documents,  Wash- 
ington, D.  C. 


128  Law,  Legislative  Reference  and 

other  documents  listed  and  the  name  of  the  official 
reporting.  For  example,  the  several  recommendations 
in  governors'  messages,  and  the  subject  of  the  separate 
acts  of  the  legislature  are  noted  and  various  bulletins, 
such  as  those  of  state  boards  of  charities,  are  analyzed. 

The  periodicals  that  may  be  counted  upon  to  give 
the  most  extensive  notice  of  current  state  documents  of 
value  in  legislative  reference  work  are  the  American 
Political  Science  Review,  the  American  Economic  Review, 
Special  Libraries,  the  Survey  and  the  National  Municipal 
Review.  The  list  in  the  last  named  is  restricted  to  docu- 
ments bearing  on  municipal  questions,  but  has  published 
excellent  reviews  of  a  number  of  the  reports  of  State 
Public  Service  Commissions.''^ 

Special  Libraries  publishes  from  time  to  time  ^^  lists  of 
investigations  authorized  by  state  legislatures  noting  the 
date  set  for  presenting  the  report  in  addition  to  giving 
notice  of  all  such  reports  when  published.  This  infor- 
mation is  given  more  fully  in  the  Bulletin  of  the  Public 
Affairs  Information  Service  described  later. 

(c)     Municipal. 

Municipal  documents  of  special  value  in  legislative 
reference  work  would  comprise  charters,  local  laws,  and 
any  publications  revealing  conditions  which  state  law 
could  remedy  or  offering  a  comparative  study  of  the 
effect  of  state  legislation  on  municipal  affairs.  For 
examples  the  reader  is  referred  to  the  section  on  city 
documents  in  the  municipal  reference  section  appearing 
later. 

"■'  See  V.  1 :  80-84;   2:  340-42. 

'^  See  especially  1 :  4,  56,  64,  76-78;   2:  122. 


Municipal  Reference  Libraries  129 

4.     Parliamentary  Law  and  Precedents. 

The  legislative  reference  library  is  frequently  resorted 
to  for  the  authorities  on  parliamentary  law  and  procedure 
and  should  contain  not  only  the  rules  and  precedents 
for  a  single  state  but  a  collection  of  authorities  on  this 
subject.  The  rules  adopted  in  any  legislature  are  deter- 
mined by  that  legislature  itself.  They  are  published  in 
the  legislative  manual  and  at  times  in  the  journals.  In 
some  instances  the  legislative  manual  contains  notes  on 
rulings  covering  a  number  of  years  ^i  and  thus  makes 
available    the    local    precedents    of  parliamentary  law. 

The  standard  American  authority  in  this  field  is 
Representative  Asher  C.  Hinds'  monumental  work 
known  as  Hinds  Precedents  of  the  House  of  Repre- 
sentatives of  the  United  StatesP  There  are  prepared 
also  manuals  of  procedure  for  each  House.  Both  con- 
tain "Jefferson's  Manual"  by  which  title  they  are 
familiarly  known,  and  are  reprinted  for  each  successive 
Congress.  The  Senate  Manual  is  issued  under  the  direc- 
tion of  the  Senate  Committee  on  Rules,*^  that  for  the 
House,8^  is  compiled  under  the  direction  of  the  Clerk  at 
the  Speaker's  table,  a  position  made  prominent  in  the 
affairs  of  the  nation  by  the  notable  parliamentarians 
that  have  occupied  it.  From  1895  to  1911  this  office  was 
held  by  Mr.  Hinds,  the  results  of  whose  years  of  ex- 
perience have  been  compiled  into  the  eight  bulky  vol- 
umes mentioned  above  and  commonly  called  Hinds 
Precedents. 

"  Cf.  Massachusetts  Manual  for  the  Use  of  the  General  Court 
Boston,  1911,  p.  618-63. 

«2  8  V.     Wash.  1907. 

8»  Latest  edition  is  now  62d  Cong.  3d  Sess.  Sen.  Doc.  1073.  Wash. 
1913. 

^  Latest  is  62d  Cong.  3d  Sess.  H.  Doc.  1109;   Wash.  1912. 


130  Law,  Legislative  Reference  and 

There  are  occasionally  published  in  separate  form 
the  Standing  Rules  for  Conducting  Business  in  the  Senate 
of  the  United  States  and  similar  publications  relating  to 
the  business  of  the  House. 

A  British  authority  in  this  same  field  is  Sir  Thomas 
Erskine  May's  Treatise  on  the  Law,  Privileges,  Proceed- 
ings and  Usage  of  Parliament,  eleventh  edition,  edited 
by  T.  Lonsdale  Webster  and  William  Edward  Grey.^ 
Corresponding  to  the  American  official  manual  there 
is  also  the  Manual  of  Procedure  in  the  Public  Business  of 
the  House  of  Commons.^^ 

Professor  Chester  Lloyd  Jones  has  made  some  in- 
teresting and  significant  comments  ^^  on  present  day 
legislative  procedure  among  American  legislatures,  nam- 
ing Massachusetts  as  typical  of  the  best  practice  of  the 
eastern  states  and  Illinois  as  typical  of  the  most  cum- 
bersome and  ineffectual  procedure  in  states  admitted 
before  the  Civil  War.  In  this  connection  it  should  be 
noted  that  the  Nebraska  Legislature  appointed  at  its 
1913  session  a  special  commission  to  investigate  the 
various  forms  of  procedure  in  use  in  the  several  states 
with  a  view  to  recommending  improvements  in  the 
Nebraska  methods.  The  investigation  is  being  con- 
ducted on  a  comprehensive  scale  and  is  being  directed 
from  the  headquarters  of  the  Nebraska  Legislative 
Reference  Bureau. 

5.     Briefs  of  Counsel. 

These  formal  printed  papers,  prepared  by  attorneys, 
which  were  considered  in  the  section  on  Law  Libraries, 

**  William  Clowes  &  Sons,  Lond.,  1906. 
«<>3ded.     Lond.  1912. 

^  In  his  Statute  Law  Making  in  the  United  States,  Bost.  1912, 
p.  15-20. 


Municipal  Reference  Libraries  131 

play  a  less  important  part  in  legislative  reference  work, 
though  occasional  recourse  may  be  had  to  them.  The 
arguments  found  in  them  will  aid  the  legislator  materially 
in  shaping  his  own  arguments  before  his  colleagues,  but 
the  opinions  of  courts  carry  more  weight  of  actual 
authority  than  the  papers  prepared  preliminary  to  the 
final  court  decision. 

(b)     Books. 

Books,  aside  from  laws  in  force  and  court  reports, 
play  a  less  important  role,  as  far  as  numbers  are  concerned, 
in  legislative  reference  work  than  might  be  expected. 
Those  that  are  of  definite  value  and  of  frequent  use  are 
indeed  relatively  few  and  compose  a  small  proportion 
of  the  printed  materials  kept  in  the  legislative  reference 
library.  The  materials  forming  the  bulk  of  such  a  library 
are  documentary  in  character  or  are  excerpts  from  mag- 
azines and  society  proceedings,  pamphlets,  and  so  forth. 
Indeed,  the  director  of  one  bureau  goes  so  far  as  to  say 
that  only  a  "small  fraction"  of  the  subject-matter  that 
comes  before  them  is  treated  in  books  at  all,  and  that 
it  is  of  very  little  value  to  place  a  general  work  before 
the  average  legislator. 

Among  the  books  which  will  be  found  necessary  are, 
first,  the  general  reference  books  appropriate  to  any 
library  aiming  to  supply  current  information  on  public 
affairs.  This  would  include,  of  course,  the  standard 
encyclopedias  and  year-books,  periodical  indexes  to 
general,  legal,  and  miscellaneous  journals,  and  current 
events,  newspaper  indexes,  statistical  compilations, 
and  the  special  encyclopedias  on  political  science, 
political  economy,  and  social  reform,  such  as  Lalor,  Con- 
rad, Palgrave,  Elster,  and  Bliss. 


132  Law,  Legislative  Reference  and 

The  other  books  which  have  a  special  place  on  the 
shelves  of  a  legislative  reference  library  are  compilations 
and  digests  of  laws,  legal  works  on  statutory  construction 
and  bill-drafting,  treatises  on  current  political  move- 
ments and  tendencies,  party  organization  and  machin- 
ery, political  platforms,  the  standard  works  on  federal 
and  state  government  and  administrative  law,  and^  as 
far  as  possible  critical  studies  of  the  actual  effect  of  laws 
in  force  offering  constructive  suggestions  for  improving 
conditions  by  new  legislation. 

Two  factors  will  determine  whether  the  legislative 
reference  library  will  attempt  to  purchase  books  in  other 
fields.  One  will  be  the  policy  and  resources  of  the  state 
library  and  the  relation  it  bears  to  the  legislative  refer- 
ence library;  the  other,  the  policy  of  the  legislative 
library  in  catering  to  the  needs  of  the  other  state  de- 
partments or  in  attempting  to  create  a  demand  in  those 
departments  by  having  on  hand  the  special  literature 
of  value  to  the  employees  of  the  state  engaged  in  such 
work  as  engineering,  highway  construction,  public 
health,  scientific  agriculture,  the  control  of  public  util- 
ities and  valuation  of  public  service  corporation  proper- 
ties, the  control  of  municipal  accounting,  institution 
management,  penolog>%  charities  and  corrections,  and 
so  on  through  the  multifarious  and  specialized  activities 
of   state   administrative   offices  in   the   present   day. 

It  is  impractical,  if  not  impossible,  to  attempt  here 
any  complete  list  of  books  of  value  in  legislative  reference 
work,  and  occasions  may  be  frequent  when  the  demand  of 
the  moment  will  be  satisfied  by  some  book  entirely 
beyond  the  scope  even  of  the  several  types  of  books 
mentioned  as  most  likely  to  be  called  for.  There  may 
be,  however,  some  slight  illustrative  value  in  offering  a 
few  select  lists  of  books  in  certain  fields. 


Municipal  Reference  Libraries  133 

A  list  of  books  on  statutory  construction  and  bill- 
drafting  is  given  in  the  appendix.^s  Illustrative  titles 
on  current  political  movements,  party  organization, 
machinery  and  platforms,  and  a  few  of  comparative 
value  as  records  of  experience  with  active  legislation 
follow. 

Comparisons    of    Laws    and    Experience    with 
Legislation. 
Ashby,  A.  W. 

One  Hundred  Years  of  Poor  Law  Administration 
in  a  Warwickshire  Village.  188  p.  Oxford,  Claren- 
don Press.  1912.  (In  Oxford  Studies  in  Social  and 
Legal  History,  Volume  III  with  Lodge,  E.  C.  The 
Estates  of  the  Archbishop  and  Chapter  of  Saint- 
Andre  of  Bordeaux  under  English  Rule.) 

Boyd,  James  Harrington. 

Workmen's  Compensation  and  Industrial  In- 
surance. 2  vols.  Indianapolis.  The  Bobbs-Merrill 
Co.     1913. 

"The  first  complete  presentation  of  the  subject  show- 
ing the  underlying  causes;  explaining  the  effects  on  both 
the  employer  and  employee,  setting  forth  the  methods,  pro- 
cedure and  the  results  in  actual  practice;  and  including  a 
full  text  of  the  statutes  in  force  January  1,  1913,  in  Germany, 
England  and  the  several  states  of  America." 

Broadhead,  Henry. 

State  Regulation  of  Labor  and  Labor  Disputes  in 
New  Zealand.  227  p.  London.  Whitcombe  and 
Tombs,  Ltd.     1908. 

An  analysis  of  the  law;   a  description  and  a  criticism. 

Commercial    Laws  of    the  World.     Boston.     Boston 
Book  Co.     1912-. 

Davenport,  Charles  B. 

State  Laws  Limiting  Marriage  Selection:  Ex- 
amined in  the  Light  of  Eugenics.  66  p.  Cold 
SpringHarbor,  L.  I.     1913. 

«8  p.  397-401. 


134  Law,  Legislative  Reference  and 

Deploige,  Simon. 

The  Referendum  in  Switzerland.  .  .  .  334  p.  Lon- 
don.    Longmans.     1898. 

Frankel,  Lee  K.  and  Dawson,  Miles  M. 

Workingmen's  Insurance  in  Europe.  433  p.  N.Y. 
Charities  Publication  Committee.     1911. 

A  comparative  study  of  great  value  covering  insurance 
against  industrial  accidents,  sickness,  death,  invalidity,  old 
age,  and  unemployment;  summary  of  laws,  statistics  and  bibli- 
ography. 

Gibbon,  L  G. 

Medical  Benefit;  a  Study  of  the  Experience  of 
Germany  and  Denmark.  290  p.  London.  P.  S. 
King  &  Co.     1912. 

Haggard,  H.  Rider. 

Rural  Denmark  and  its  Lessons.  335  p.  N.  Y. 
Longmans.     1911. 

Hutchins,  B.  L.  and  Harrison,  A.  (Mrs.  F.  H.  Spence). 
A  History  of  Factory  Legislation,  with  a  Preface 
by  Sidney  Webb.     Ed'  2.     298  p.     London.     P.  S. 
King  and  Son.     1911. 

An  English  treatise  of  comparative  significance;  contains 
bibliography. 

Jelf,  Ernest  Arthur. 

The  Corrupt  and  Illegal  Practices  Preyention  Acts, 
1883  and  1895,  with  Notes  of  Judicial  Decisions  and 
with  short  introductory  Chapters  on  Election  Peti- 
tions under  these  Acts,  Election  Contests  under  these 
Acts  and  the  Parliamentary  Common  Law  of  Agency. 
218  p.     London.     Sweet  and  Maxwell,  Ltd.     1905. 

Kelley,  Florence. 

Some  Ethical  Gains  through  Legislation.  336  p. 
N.  Y.     The  Macmillan  Co.     1905. 

National  Committee  for  Mental  Hygiene. 

Summaries  of  Laws  relating  to  the  Commitment 
and  Care  of  the  Insane  in  the  United  States.  297  p. 
N.  Y.     1912. 


Municipal  Reference  Libraries  135 

Pic,  Paul. 

Traits  E16mentaire  de  Legislation  Industrielle. 
1206  p.     Paris.     Arthur  Rousseau.     1912. 

"A  very  thorough,  painstaking  review  of  the  history  and 
status  of  labor  legislation  in  all  the  important  countries  of 
the_  world.  .  .  .  The  scientific  evolutionary  viewpoint  is 
maintained  throughout;  the  author  sees  clearly  and  states  his 
conclusions  fearlessly."     Solon  DeLeon. 

Russell  Sage  Foundation  —  Division  of  Education. 
A  comparative  Study  of  Public  School  Systems  in 
the  Forty-eight  States.     32  p.     1913. 

Singer,  Berthold. 

Copyright  Laws  of  the  World.     196  p.     B.  Singer 
Chicago.     1909. 

.     Patent  and  Trademark  Laws  of  the  World .     539 

p.     B.  Singer.     Chicago.     1911. 

Trade  Mark  Laws    of  the  World  and  Unfair 


Trade.     685  p.     B.  Singer.     Chicago.     1913. 

Whitin,  E.  Stagg. 

Penal  Servitude.  162  p.  N.  Y.  National  Com- 
mittee on  Prison  Labor.     1912. 

Appendixes  contain  the  Report  on  the  House  of  Correction, 
Jessup,  Maryland,  and  prison  labor  in  State  party  platforms, 
in  governors'  messages,  and  state  laws. 

Whitlock,  Brand. 

On  the  Enforcement  of  Law  in  Cities.  95  p. 
Indianapolis.     Bobbs-Merrill  Co.     cl910.     '13. 

Wise,  B.  R. 

The  Commonwealth  of  Australia.     348  p.     Bos- 
ton.    Little,  Brown  and  Co.     1909. 
Part  III:  p.  247-343.     "Legislation." 

The  Business  of  Government. 

Baldwin,  Simeon  E. 

The  American  Judiciary.  403  p.  N.  Y.  Cen- 
tury.    1905. 


136  Law,  Legislative  Reference  and 

Beard,  Charles  A. 

American  Government  and  Politics.  772  p.  N.  Y. 
Macmillan.     1910. 

"Bibliographical  note,"  p.  755-59.     A  select  list. 

.     Readings  in  American  Government  and  Politics. 

620  p.     N.  Y.     Macmillan.     1910. 

Brooks,  Robert  C. 

Corruption  in  American  Politics  and  Life.  309  p. 
N.  Y.     Dodd,  Mead  &  Co.     1910. 

Bryce,  James. 

The  American  Commonwealth.  2v.  N.Y.  Mac- 
millan.    1911. 

Dougherty,  J.  Hampden. 

The  Electoral  System  of  the  United  States.  425  p. 
N.  Y.     Putnam's  Sons.     1906. 

Fairlie,  John  Archibald. 

The  National  Administration  of  the  United 
States.     247  p.     N.  Y.     Macmillan.     1905. 

Finley,  John  H.  and  Sanderson,  John  F. 

The  American  Executive  and  Executive  Methods. 
352  p.     N.  Y.     Century.     1908. 

Fish,  Carl  Russell. 

The  Civil  Service  and  Patronage.     280  p.    N.  Y. 
Longmans.     1905. 
Authorities,  p.  252-66. 

Foltz,  El  Bie  K. 

The  Federal  Civil  Service  as  a  Career.  .  .  .  325  p. 
N.  Y.     Putnam.     1909. 

Good  now,  Frank  J. 

The  Principles  of  the  Administrative  Law  of  the 
United  States.     440  p.     N.  Y.     Putnam.     1905. 
Authorities,  p.  465-68. 

Haines,  Lynn. 

The  Minnesota  Legislature  of  1909:  a  History  of 
the  Session,  with  an  inside  View  of  Men  and  Meas- 
ures.    127  p.     (Minneapolis,  cl910.) 


Municipal  Reference  Libraries  137 

— .  The  Minnesota  Legislature  of  1911  128  p 
(Minneapolis).  1911.  (Rev.  in  Annals  of  Amer 
Acad,  of  Pol.  &Soc.  Set.  v.  44:  147,  November,  1912.) 
The  Senate  from  1907  to  1912.   63  p.    Bethesda, 


Md. 

"The  story  of  the  stewardship  of  those  United  States  Sena- 
tors whose  terms  expire  March  third,  nineteen  thirteen" 
(Kev.  in  Annals  44:  147-48.     November,  1912.) 

Hichborn,  Franklin. 

Story  of  the  California  Legislature  of  1909. 
296  p.     San  Francisco.     James  H.  Barry  Co.    1909. 

.     Story  of   the  California   Legislature  of   1911 

348  p.  1911. 

(Reviewed  in  Amer.  Pol.  Sci.  Rev.  6:  648-49;  "Mr.  Hich- 
born has  done  a  tremendous  public  service  to  California  in 
the  publication  of  these  volumes,  and  has  pointed  the  way  of 
escape  to  other  states  sufTering  from  similar  conditions." 
B.  E.  H.) 

Howe,  Frederic  C. 

Privilege  and  Democracy  in  America.  315  p. 
N.  Y.     Scribner's.     1910. 

McCall,  Samuel  W. 

The  Business  of  Congress.     215  p.     N.  Y.     Col 
Univ.  Press.     1911. 

Ostrogorski,  M. 

Democracy  and  the  Party  System  in  the  United 
States,  a    Study   in    Extra-Constitutional    Govern- 
ment.    469  p.     N.  Y.     Macmillan.     1910. 
Bibliographical  note,  p.  457-61. 

Reinsch,  Paul  S. 

American  Legislatures  and  Legislative  Methods. 
337  p.     N.  Y.     Century.     1908. 

.  Ed.  Readings  on  American  State  Government. 
473  p.     N.  Y.     Ginn.     cl911. 

Wilson,  Wood  row. 

The  State.  Elements  of  Historical  and  Practical 
Politics.     656  p.     N.  Y.     D.  C.  Heath  &  Co.    1898. 


138  Law,  Legislative  Reference  and 

Political  Parties. 
History,  Organization,  Machinery,  Platforms. 

Belloc,  Hilaire  and  Chesterton,  Cecil. 

The  Party  System.  226  p.  London.  Stephen 
Swift.     1911. 

Concerns  England. 

Jones,  Chester  Lloyd. 

Readings  on  Parties  and  Elections  in  the  United 
States.     354  p.     Macmillan.     N.  Y.     1912. 

McKee,  T.  H. 

National  Conventions  and  Platforms  of  all  Politi- 
cal Parties,  1789-1905;  Conventions,  Popular  Elec- 
toral Vote,  also  the  Political  Complexion  of  both 
Houses  of  Congress  at  each  Biennial  Period.  Ed.  6. 
418-33  p.     Baltimore.     Friedenwold.     1906. 

Party  Platforms  are  printed  in  the  World's  Almanac, 
Tribune  Almanac  and  Political  Register  (N.  Y.),  Tribune 
Almanac  (Chicago),  in  the  newspapers  at  the  time  of  adop- 
tion and  are  usually  given  in  full  or  in  summary  form  in  the 
various  cyclopedic  yearbooks  or  annuals  for  the  years  cover- 
ing a  political  convention  or  campaign.  The  parties  themselves 
also  issue  yearbooks  or  campaign  books  containing  the  plat- 
form and  other  campaign  literature.  For  the  platforms  of 
state  parties,  local  state  almanacs  or  newspaper  almanacs, 
local  campaign  books,  or  the  newspapers  must  be  consulted. 

Macy,  Jesse. 

Party  Organization  and  Machinery.  316  p.  N.  Y. 
Century.     1912. 

An  appendix  contains  the  Direct  Primary  Law  of  California 
and  the  Rules  and  Regulations  of  the  Democratic  Republican 
Organization  of  New  York.     1904. 

.     Political  Parties  in  the  United  States,  1846-1861. 

333  p.     N.  Y.     Macmillan.     1900. 

Ray,  P.  Orman. 

An  Introduction  to  Political  Parties  and  Practical 
Politics.     493  p.     N.  Y.     Scribner.     cl913. 

Discusses  the  Democratic,  Republican,  Progressive,  and 
Socialist   Parties  and  platforms,   1912;    nominating  methods 


Municipal  Reference  Libraries  139 

campaigns  and  elections  and  the  practical  politics  of  the 
"Party  in  Power."  At  the  end  of  each  chapter  appear 
Questions  and  Topics  and  a  Bibliography.  Chap.  XX  on 
"Remedies  for  Legislative  Evils,"  discusses  "Legislative 
Reference  Libraries,"  p.  446-48. 

Woodburn,  James  Albert. 

Political  Parties  and  Party  Problems  in  the 
United  States.  314  p.  N.  Y.  G.  P.  Putnam's  Sons. 
cl903. 

Current  Political  Movements  and  Tendencies. 

Beard,  Charles  A. 

An  Economic  Interpretation  of  the  Constitution 
of  the  United  States.     330  p.     N.  Y.     Macmillan 
1913. 

Beard,  Charles  A.  and  Shultz,  Birl  E. 

Documents  on  the  State-wide  Initiative,  Referen- 
dum and  Recall.     394  p.     N.  Y.     Macmillan.  1912. 

Commons,  John  R. 

Proportional  Representation.  363  p.  N.  Y. 
Macmillan.     1907. 

Goodnow,  Frank  J. 

Social  Reform  and  the  Constitution.  365  p.  N. 
Y.  Macmillan.  1911.  (American  Social  Progress 
Series) . 

Howe,  Frederic  C. 

Wisconsin,  an  Experiment  in  Democracy.    202  p. 
N.  Y.     Scribner's.     1912. 
Bibliographical  note,  p.  193-96. 

McCarthy,  Charles. 

The  Wisconsin  Idea.  323  p.  N.  Y.  Macmillan. 
1912. 

Bibliographical  note,  p.  307-17. 

McLaughlin,  Andrew  C. 

The  Courts,  the  Constitution,  and  Parties: 
Studies  in  Constitutional  History  and  Politics.  299  p. 
Chicago,  University  of  Chicago  Press.     cl912. 


140  Law,  Legislative  Reference  and 

IVIerriam,  C.  E. 

Primary  Elections.   .   .  .     308  p.     Chicago.     Uni- 
Aersity  of  Chicago.     1908. 
Bibliographical  note,  p.  289-95. 

Munro.  William  Bennett,  ed. 

The  Initiative,  Referendum,  and  Recall.  365  p. 
N.  Y.     Appleton.     1912. 

Ransom,  William  L. 

Majority  Rule  and  the  Judiciary,  an  Examination 
of  current  Proposals  for  Constitutional  Change 
affecting  the  Relation  of  Courts  to  Legislation,  with 
an  Introduction  by  Theodore  Roosevelt.  183  p. 
N.  Y.     Scribner's.     1912. 

Squier,  Lee  Welling. 

Old  Age  Dependency  in  the  United  States,  a 
Complete  Survey  of  the  Pension  Movement.  301  p. 
N.  Y.     Macmillan.     1912. 

Wilcox,  Delos  F. 

Government  by  all  the  People  or  the  Initiative, 
Referendum  and  the  Recall  as  Instruments  of  Democ- 
racy.  324  p.    N.  Y.    Macmillan.    1912. 

Wilson,  Woodrow. 

The  New  Freedom.  294  p.  N.  Y.  Doubleday, 
Page  &  Co.  1913.  (Rev.  in  Annals  v.  49:  257-58, 
September,  1913). 

Criminology  and  Penology. 

Brockway,  Zebulon  Reed. 

Fift>-  Years  of  Prison  Service.  437  p.  N.  Y. 
Charities  Publication  Committee.     1912. 

Currier,  Albert  H. 

The  Present  Day  Problem  of  Crime.  179  p. 
Boston.  Richard  G.  Badger,  The  Gorham  Press. 
1912. 


Municipal  Reference  Libraries  141 

Parmelee,  Maurice. 

The  Principles  of  Anthropology  and  Sociology  in 
their  Relations  to  Criminal  Procedure.  410  p 
N.  Y.     Macmillan.     1908. 

Quinton,  R.  F. 

Crime  and  Criminals.  1876-1910.  259  p.  N.  Y. 
Longmans.     1910. 

A  detailed  study  of  English  criminals,  prison  administration, 
and  criminal  reform. 

.  The  Modern  Prison  Curriculum,  a  General  Re- 
view of  our  Penal  System.  276  p.  London.  Mac- 
millan and  Co.     1912. 

On  punishment,  reclamation,  and  the  treatment  of  minor 
crime;   contains  the  Prevention  of  Crime  Act,  1908. 

There  are  also  certain  series  of  books  of  such  a  nature 
that  practically  all  titles  in  the  series  are  worth  having 
in  a  library  interested  primarily  in  legislation  and  the 
underlying  causes  therefor.  "The  American  State  Se- 
ries," edited  by  W.  W.  Willoughby,  published  by  the 
Century  Company,  "The  Citizens  Library  of  Economics, 
Politics  and  Sociology,"  edited  by  Richard  T.  Ely,  and 
"The  American  Social  Progress  Series,"  published  by 
the  Macmillan  Company,  are  examples. 

The  "Debaters'  Handbook  Series"  of  the  H.  W.  Wilson 
Company,  now  of  White  Plains,  N.  Y.,  is  specially  useful 
with  its  selected  articles  on  the  merits  and  demerits 
of  proposed  solutions  of  public  questions  and  its  conven- 
ient bibliographies.  This  series  now  comprises  twenty- 
two  books. 

Debater's  Handbook  Series. 

"Capital  Punishment,"  by  C.  E.  Fanning.     1913.    2d  ed. 

239  p.     Bibl.,  p.  24. 
"Central    Bank,"    by    E.    C.    Robbins.     1910.     182  p. 

Bibl.,  (5)-13. 


142  Law,  Legislative  Reference  and 

"Child  Labor,"  by  E.  D.  Bullock.     191L    196  p.    Bibl., 

p.  20. 
"Commission  Plan  of  Municipal  Government,"  by  E.  C. 

Robbins.     1912.    3d  ed.     180  p.     Bibl.  (15)-29. 
"Compulsory   Arbitration    of    Industrial   Disputes,"  by 

L.  T.  Beman.    1911.     50+  115  p.     Bibl.  (23)-50. 
"Compulsory    Insurance,"    by    E.    D.    Bullock.     1912, 

266  p.     Bibl.  35. 
"Conservation  of  National  Resources,"  by  C.  E.  Fan- 
ning.    1913.     153  p.     Bibl.  (11)-15. 
"Direct   Primaries,"   bv  C.   E.   Fanning.     1911.  3d  ed. 

145  p.     Bibl.  20  p. 
"Election  of  U.  S.  Senators,"  by  C.  E.  Fanning.     1912. 

2ded.     116  p.     Bibl.  (11)-16. 
"Emplovment  of  Women,"   bv  E.   D.   Bullock.     1911. 

147'p.     Bibl.,  18  p. 
"Enlargement  of  U.  S.  Navy,"  bv  C.  E.  Fanning.    1910. 

3d  ed.     138  p. 
"Federal  Control  of  Interstate  Corporations,"  by  E.  M. 

Phelps.     1911.     200  p.     Bibl.  (15)-26. 
"Free  Trade  Versus  Protection,"  bv  J.  E.  Morgan.   1913. 

186  p.     Bibl.  (19)-29. 
"Government  Ownership  of  Railroads,"  bv  E.M.  Phelps. 

1912.     179  p.     Bibl.  (21)-31. 
"Income  Tax,"  by  E.  M.  Phelps.    1911.    2d  ed.    147  p. 

Bibl.  (9)-29. 
"Initiative  and  Referendum,"  by  E.  M.  Phelps.    2d  ed. 

1911.  164  p.     Bibl.  (11)-31. 

"Municipal   Ownership,"   by  J.  E.   Morgan  and   E.  D. 

Bullock.     1911.     219  p.     Bibl.  (15)-24. 
"Open  versus  Closed  Shop,"  by  E.  C.  Robins.     2d  ed. 

1912.  194  p.     Bibl.  (13)-21. 

"Parcels    Post,"    by    E.    M.    Phelps.     2d    ed.     158    p. 

1st  ed.    1911.    142  p.    Bibl.  (13)-21. 
"Reciprocity,"  by  E.  C.  Robins.     1913.     222  p.     Bibl. 

(15)-22. 


Municipal  Reference  Libraries  143 

"Trade  Unions,"  by  E.  D.  Bullock.    1913.    262  p.    Bib., 

p.  xi-xxvii. 
"Woman  Suffrage,"  by   E.    M.    Phelps.     2d  ed.     1912. 

162  p.     Bibl.  (17)-37. 

(c)     Serial  Publications,  Periodicals,  Society 
Proceedings,  etc.^^ 

1.     General. 

The  extent  to  which  the  legislative  reference  library 
should  attempt  to  maintain  unbroken  files  of  periodicals 
and  society  proceedings  will  naturally  be  influenced  by 
the  availability  of  such  material  in  the  state  library  and 
the  facilities  offered  by  other  local  collections.  Available 
funds  are  also  a  factor  in  this  question  as  they  are  in 
most. 

It  seems  obvious,  however,  that  a  fairly  large  number 
of  journals  should  be  regularly  searched  for  discussions 
or  items  of  news  pertinent  to  the  work  immediately 
before  the  library.  For  purposes  of  discussion  these  may 
be  divided  into  two  groups:  publications  to  be  examined 
each  issue  for  news  notes  and  special  articles,  and  publi- 
cations for  which  subscriptions  should  be  entered,  irre- 
spective of  the  fact  that  the  subscription  may  dupHcate 
one  from  the  state  library. 

Among  those  regularly  examined  though  not  neces- 
sarily subscribed  for  would  be  general  weekly  periodicals 
such  as  the  Nation,  Outlook,  Independent,  Collier's 
National  Weekly,  and  t\v&  Literary  Digest;  monthlies  like 
the   Atlantic,    Century,   Everybody  s,    Forum,    Harper  s, 

8^  For  full  bibliographical  details  of  the  periodicals  mentioned, 
consult  the  "List  of  Periodicals  Indexed"  in  the  Readers'  Guide  and 
Readers'  Guide  Supplement,  in  the  Annual  Magazine  Subject-Index, 
in  the  Index  to  Legal  Periodicals  and  Law  Library  Journal,  the  list  of 
"Periodicals  —  Library,  Book  Trade  and  Kindred,"  in  the  American 
Library  Annual  and  Walter's  Periodicals  for  the  Small  Library  (Chi- 
cago A.  L.  A.  Publishing  Board,  1913). 


144  Law,  Legislative  Reference  and 

McClures,  North  American  Review,  Review  of  Reviews, 
Scrihners  and  the  World's  Work.  Certainly  subscrip- 
tions would  be  entered  for  many  of  those  if  they  were  not 
already  easily  accessible.  A  list  of  the  journals  of  a  more 
restricted  scope  which  should  be  scanned  each  issue 
would  include  such  things  as  La  Follettes  Weekly,  the 
Public,  Educational  Review,  Banker  s  Magazine,  Muni- 
cipal Engineering,  Engineering  Magazine,  Municipal 
Journal  and  Engineer,  Public  Service,  American  Federa- 
tionist,  the  important  law  journals  not  taken  by  the 
library,  and  the  organs  of  the  interests  and  trades  to  be 
affected  by  proposed  legislation.  In  case  the  copy 
examined  of  any  of  these  periodicals  named  contained  an 
article  needed  the  single  issue  might  be  purchased  and 
the  article  clipped,  or  a  reprint  of  the  article  might  be 
obtained  from  the  writer.  In  some  cases  important 
articles  might  be  catalogued  in  the  regular  catalogue  and 
thus  definitely  located,  though  the  article  itself  might  not 
be  immediately  secured. 

Judgments  will  differ  even  more  on  any  list  of  peri- 
odicals and  society  proceedings  for  which  separate 
subscription  should  be  entered.  At  least  two  distinct 
types  must  be  received;  those  which  bear  upon  actual 
or  proposed  legislation  or  conditions  necessitating 
legislation  and  those  which  make  a  special  point  of 
calling  attention  currently  to  new  books,  documents, 
and  articles  which  the  legislative  reference  librarian  may 
wish  to  secure. 

In  the  first  group  would  come  the  American  Political 
Science  Review,  the  Annals  of  the  American  Academy  of 
Political  and  Social  Science,  the  Proceedings  of  the 
National  Conference  of  Charities  and  Corrections,  the  Amer- 
ican Economic  Review,  the  Journal  of  Political  Economy, 


Municipal  Reference  Libraries  145 

the  Political  Science  Quarterly,  the  Proceedings  of  the 
American  PoUtical  Science  Association,  the  Proceedings 
of  the  Academy  of  Political  Science  in  the  City  of  New- 
York,^"  the  Proceedings  and  Addresses  of  the  National 
Education  Association,  the  Delinquent,  the  Quarterly 
Journal  of  Economics,  the  National  Tax  Associations, 
Annual  Conferences  on  State  and  Local  Taxations,  the  Sur- 
vey, the  Journal  of  the  American  Institute  of  Criminal 
Law  and  Criminology,  the  Proceedings  of  the  National 
Prison  Association,  the  Child  Labor  Bulletins  of  the  Na- 
tional Child  Labor  Committee,  £gMt/>'  Series,  the  American 
Law  Review,  Harvard  Law  Review,  Central  Law  Journal, 
and  the  local  state  law  review. 

This  first  group  includes  several,  such  as  the  American 
Political  Science  Review,  American  Economic  Review, 
and  Survey,  which  are  particularly  useful  in  directing 
attention  to  current  publications  in  addition  to  the 
value  of  their  own  contributed  discussions. 

In  this  same  general  class,  though  illustrating  a  type 
of  publication  perhaps  not  usually  thought  of  in  connec- 
tion with  legislation,  would  come  the  publications  of 
certain  learned  societies,  university  "studies,"  and  so  on, 
of  which  occasional  numbers  would  have  a  special 
bearing  on  matters  of  legislative  concern. 

The  Carnegie  Foundation  would  illustrate  the  kind  of 
institution  meant.  In  the  Seventh  ^^  Annual  Report  of  the 
President  and  of  the  Treasurer  of  the  Carnegie  Founda- 
tion for  the  Advancement  of  Teaching  appears  a  notable 
discussion  of  the  pension  problem  now  prominent  in 
educational  circles  in  a  number  of  states.  The  other 
reports  and  bulletins  of  the  Foundation  are  extremely 

^^  Each  number  devoted  to  a  separate  topic;  i.e..  Vol.  3,  no.  4, 
July,  1913.  "The  Caged  Man,"  a  summary  of  existing  legislation  in 
the  United  States  on  the  treatment  of  prisoners.     136  p. 

91  1912. 


146  Law,  Legislative  Reference  and 

valuable  and  bear  on  many  phases  of  state  education 
and  particularly  the  standards  that  should  be  set.  Any 
state  having  within  its  borders  a  medical  school  con- 
demned in  the  Foundation's  Bulletin  Number  Four  on 
"Medical  Education  in  the  United  States  and  Canada"^^ 
or  any  of  the  "Sham  Universities"  exposed  in  the 
seventh  annual  report^^  should  set  about  righting  con- 
ditions by  stringent  legislation. 

Among  university  studies  containing  frequent  con- 
tributions in  the  field  of  legislation  are  the  Columbia 
University  Studies  in  History,  Economics,  and  Public  Law, 
and  the  Johns  Hopkins  University  Studies  in  Historical 
and  Political  Science. 

In  the  second  group,  valuable  primarily  in  this  con- 
nection for  their  news,  notes,  and  index  features,  would 
come  Special  Libraries,  the  Publishers  Weekly,  the 
A.L.  A.  Booklist,  the  Book  Review  Digest,  the  Cumulative 
Book  Index,  the  Readers  Guide  to  Periodical  Literature, 
the  Readers  Guide  Supplement,  Current  Events  Index, 
Quarterly  Index  to  the  New  York  Times,  the  Index  to 
Legal  Periodicals  and  Law  Library  Journal,  the  Annual 
Magazine  Subject-Index,  the  Library  Journal,  Public 
Libraries  and  the  American  Library  Antiual.  This  last 
is  no  longer  the  "Annual  Poole.''  It  now  indexes  no 
magazines  but  is  specially  valuable  for  its  "Index  to 
Dates  of  Current  Events,"  list  of  "Bibliographies  Pub- 
lished during  the  Year,"  "Directory  of  Publishers  and 
Booksellers,"  as  well  as  its  other  features.  With  the 
titles  named  in  these  several  groups  of  serial  publications, 
should  be  associated  those  previously  named  in  connec- 
tion with  the  go\ernment  documents  such  as  the  bulle- 
tins of  state  and  federal  bureaus  of  labor,  health,  edu- 

"  1910. 
93  1912,  p.  154-63. 


Municipal  Reference  Libraries  147 

cation,  and  so  on,  and  those  sources  which  note  the  ap- 
pearance in  print  of  these  bulletins  and  other  publica- 
tions, like  the  Monthly  Catalogue  of  the  Superintendent 
of  Documents  and  the  Monthly  List  of  State  Publica- 
tions of  the  Library  of  Congress. 

2.     Comparative  Legislation. 

The  publications  devoted  strictly  to  comparative  legis- 
lation have  been  reserved  till  now  for  separate  dis- 
cussion, but  it  will  have  been  observed  that  among  the 
periodicals  already  mentioned  many  keep  in  close  touch 
with  the  laws  enacted  relating  to  activities  in  which 
they  are  specially  interested. 

The  American  source  for  comparative  foreign  law  in- 
formation is  the  Annual  Bulletin  of  the  Comparative 
Law  Bureau  of  the  American  Bar  Association.  This  has 
been  issued  on  July  first  of  each  year  since  1908,  and  has 
remained  under  the  general  editorship  of  Mr.  William 
W.  Smithers  of  Philadelphia,  Secretary  of  the  Bureau, 
since  the  beginning.  In  the  list  of  officers  and  managers  of 
the  Bureau  and  of  the  editorial  staff  of  the  Bulletin, 
appear  the  names  of  the  leading  authorities  in  foreign 
law  resident  in  the  United  States,  each  editing  the  sec- 
tions devoted  to  the  country  of  his  specialty.  The  foreign 
correspondents,  actual  practitioners  of  the  law  and  noted 
names  in  their  respective  countries,  give  added  weight 
to  the  already  authoritative  contributions  to  the  Bulletin. 

The    Comparative    Law    Bureau    has   the   following 
objects: 

1.  The  publication  of  an  annual  Bulletin,  containing 
the  titles  of  legislative  enactments  of  foreign  gov- 
ernments, and  reviews  of  foreign  law  books  and 
periodicals  published  during  the  preceding  twelve 
months. 


148  Law,  Legislative  Reference  and 

2.  The    translation    into    English    and    publication    of 

foreign  fundamental  laws. 

3.  The  translation  into   English  of  particular  foreign 

laws  and  the  preparation  by  specialists  of  legal 
opinions  upon  questions  arising  thereon. 

4.  The  holding  of  an  annual  conference  to  discuss  com- 

parative law  generally,  and  to  provide  more 
thorough  means  by  which  foreign  laws  can  become 
available  to  American  lawyers. 

5.  The  prosecution  of  special  lines  of  research  in  for- 

eign legislation  and  the  preparation  of  English 
translations  of  the  results  thereof  for  the  benefit 
of  American  lawyers  and  students. 

6.  To  maintain  a  list  of  correspondents  at  home  and 

abroad  representing  high  legal  attainments  re- 
specting every  considerable  nation  and  every 
system  of  laws. 

7.  To  gather  materials  and  information  so  thoroughly 

as  to  afford  real  aid  to  practicing  lawyers,  teachers 
and  students  upon  the  subject  of  foreign  juris- 
prudence generally,  including  the  widest  practicable 
bibliography. 

Its  membership  is  made  up  of  members  of  American 
Bar  Association,  state  and  local  bar  associations,  law 
schools,  law  libraries,  institutes  of  learning,  and  other 
organized  bodies. 

After  preliminary  data  giving  the  names  of  officers, 
objects,  editorial  staff,  necrology,  and  so  on,  each  issue 
of  this  Annual  Bulletin  notes  the  location  of  the  principal 
foreign  law  collections  in  the  United  States,  presents  a 
list  of  foreign  codes  now  accessible  in  English,  an  editorial 
miscellany,  brief  notes  on  private  international  law.  and 
several  substantial  special  articles  on  numerous  phases 
of  foreign  law. 

The  second  and  larger  portion  of  each  number  is 
devoted  to  a  review  of   "Foreign  Legislation,  Jurispru- 


Municipal  Reference  Libraries  149 

dence  and  Bibliography."  Countries  are  considered  in 
an  alphabetical  order,  and  for  each  country  is  offered  as 
a  rule  a  very  brief  summary  of  the  important  legislation 
of  the  preceding  year,  notes  on  important  legal  decisions, 
and  a  bibliography  of  the  important  legal  publications  — 
codes,  treatises,  and  noteworthy  articles  —  that  have 
appeared  during  the  year.  Under  the  name  of  Latin 
America,  the  separate  countries  comprehended  are 
arranged  alphabetically,  and  do  not  take  their  alphabeti- 
cal places  in  the  general  list. 

A  bibliography  of  the  leading  articles  on  foreign  law 
which  have  appeared  in  legal  periodicals  the  past  year, 
with  book  reviews  making  a  separate  group,  and  several 
short  reviews  of  current  legal  publications  complete 
each  issue. 

Valuable  as  this  Bulletin  is  as  the  only  American  pub- 
lication dealing  exclusively  with  comparative  foreign 
law,  its  usefulness  could  be  greatly  enhanced  by  pre- 
senting more  extended  reviews  of  foreign  legislation 
than  is  now  the  case.  Its  list  of  "Principal  Foreign 
Law  Collections  in  the  United  States,"  while  serving  a 
useful  purpose,  would  be  greatly  increased  in  usefulness 
if  some  rough  idea  were  given  of  the  general  scope  and 
size  of  the  individual  collections  by  a  brief  note  regarding 
each  one.  According  to  the  Law  Librarian  of  Congress  the 
best  collections  of  foreign  law  in  the  United  States  are  at 
Harvard,  at  the  Gary  Library  of  Northwestern  University 
Law  School,  Chicago,  and  at  the  Library  of  Congress. 
Mr.  Borchard  considers  them  of  approximately  equal  rank. 
From  the  list  in  the  Bulletin,  however,  no  notion  could  be 
gleaned  of  the  relative  merits  of  any  of  the  collections. 

Another  criticism  suggests  itself  in  connection  with 
the  list  of  "Foreign  Laws  Translated,"  under  which  those 


150  Law,  Legislative  Reference  and 

now  accessible  in  English  are  listed.  The  latest  list  (1913) 
of  two  pages,  preserves  no  order  consistently,  lacks  all 
bibliographical  details,  has  no  annotation,  and  under 
"Foreign  Laws"  includes  such  titles  as  Criminal  Psy- 
chology by  Gross,  the  other  titles  in  the  Modern  Criminal 
Science  Series,  and  Leading  Cases  on  Hindu  Law  by  Aiyar. 
Any  list  so  miscellaneous  as  this  should  have  a  broader 
title,  a  classification,  full  bibliographical  details,  and 
descriptive  notes. 

In  Great  Britain  and  on  the  Continent  several  so- 
cieties for  studying  comparative  legislation  had  been 
in  active  operation  before  the  foundation  of  the  American 
Bureau  in  1908.  Their  valuable  journals  are  here 
characterized^^  in  the  order  of  their  initial  appearance. 

Societe  de  Legislation  Comparee. 

Annuaire  de  Legislation  Etrangere.  (1870-),  v.  1-, 
Paris,  1872-. 

"...  The  oldest  and  best  known  publication  in  thib 
field.  It  attempts  to  cover  all  countries  but  actually  confines 
itself  principally  to  the  German  and  Latin  countries  of  Conti- 
nental Europe.  The  legislation  of  the  British  Colonies,  of 
the  United  States,  and  of  the  countries  of  South  and  Central 
America  is  very  inadequately  treated."  (Dodd.)  No  refer- 
ences are  made  to  French  legislation. 

Each  countr>^  is  considered  separately  and  the  full  text  of 
important  laws  is  given  in  French.  Each  volume  is  provided 
with  a  table  of  contents,  text,  chronological  table  of  laws 
cited,  and  an  analytical  index  which  indicates  whether  the 
law  indexed  is  fully  transcribed,  analyzed,  or  merely  men- 
tioned in  the  text. 

The  section  devoted  to  notes  on  legislation  in  foreign  coun- 
tries published  in  the  Bulletin  Mensuel  of  the  Society  supple- 
ments the  comparative  legislation  data  of  the  Annuaire. 

w  The  characterizations  are  based  on  an  article  by  Prof.  W.  F. 
Dodd  entitled  "An  Index  of  Comparative  Legislation"  {American 
Political  Science  Review,  1 :  62-75)  and  on  an  examination  of  files  of 
6uch  of  the  titles  as  have  been  available. 


Municipal  Reference  Libraries  151 

Society  de  Legislation  Comparee. 

Bulletin    Mensuel,    1869 .        v      1 P^rlc 

1872 .  '    ^^"^' 

The  Bulleiin  contains  in  addition  to  lists  of  members  and 
the  proceedmgs  of  the  society  and  its  several  sections   lists  of 
books  received  by  the  society,  current  legislation  and  legisla 
tive  tendencies  m  various  countries,  and  notes  on  new  books 

Principally  at  the  request  of  the  foreign  members  of  the 
Society  It  began  the  publication  in  1882  of  ^nAnnlaLde 
Legislation  frangaise,  volume  one  covering  1881  which  it  hav 
continued  to  date  This  last  publication  furni'shes  the  texts 
oHaws  passed  in  France,  Algiers,  Tunis,  and  the  French  Colo- 

Internationale  Vereinigung  fur  Vergleichende  Rechts- 
wissenschaft  und  Volkswirtschaftslehre 

Jahrbuch.     V.  1 ,  1895 ,  Berlin,  1896 . 

"Does  not  attempt  to  publish  texts  of  laws,  and  its  reviews 
cover  economic  as  well  as  legal  matters.  Although  it  attempts 
to  review  the  legislation  of  all  countries,  it  actually  summarizes 
;uln-f-  uV  ,  •  ^^  European  countries,  and  hardly  touches 
the  British  Colonies  and  Spanish  American  republics,  its  treat- 
ment of  Great  Britain  and  the  United  States  is  slight,  but  its 
reviews  of  the  legislation  of  the  Slavic  countries  are  superior  to 
those  of  any  other  publication."  Arranged  alphabetically  by 
ITcl     TbJdd  )         '  ^°"'^*'"'^^  ^^^^'■^'  y^^""^  'ate  •"  appear- 

Society  of  Comparative  Legislation  (London). 

Journal,     v.  1 ,  1896 .     London,  1897 . 

Series  1  in  two  volumes,  1896-1897;  series  2 
(New  Series).     1899 . 

Two  numbers  of  the  Journal  constitute  a  volume.  Each 
number  contains  authoritative  contributed  articles  on  various 
subjects,  usually  discussions  of  the  laws  of  a  particular  country 
in  a  single  field,  and  "notes"  on  matters  of  current  interest- 
among  these,  "Comparative  Law  in  the  Blue-books"  is  a  regular 
teature.  Each  year  one  of  the  numbers  contains  in  addition 
an  annual  review  of  legislation.  That  for  1910  appeared  in 
the  May,  1912,  Journal.  This  Review  has  a  separate  table  of 
contents  and  detailed  subject  index.  It  consists  of  an  intro- 
duction calling  attention  to  the  specially  important  legislation 
ot  the  year  and  summary  statements  (not  the  text)  of  laws 
passed  in  the  separate  countries  and  their  constituent  states 
or  provinces,  with  special  emphasis  on  Great  Britain  and  the 
British  Colonies. 


152  Law,  Legislative  Reference  and 

Institut  de  Droit  Comparee. 

Revue,     v.  1 .     Brussels,  1908 . 

The  Italian  Institute  Guiridico  della  R.  University 
di  Torino  is  working  somewhat  along  the  same  line 
and  similar  work  in  Spain  is  represented  by  the  fol- 
lowing : 

Giron,  Vicente  Romero  and  Noreno,  Alejo  Garcia. 

Coleccion  de  las  Instituciones  Politicas  y  Juridicas 
de  los  Pueblos  Modernos.     Madrid. 

Series  I  in  13  volumes  "gives  full  texts  in  Spanish  of  the 
codes  and  principal  laws  in  force  in  the  countries  of  Europe. 
A  second  series,  of  which  only  two  volumes  have  been  pub- 
lished,'^ will  give  similar  texts  for  North  and  South  America." 
An  annual  appendix  or  Complemento  to  the  Coleccion  was 
begun  in  1895  under  the  title  Anuario  de  Legislacion  Uni- 
versal of  which  nineteen  volumes  have  been  published.'^  Two 
volumes  per  year,  one  for  American  countries  covering  Latin 
America  fully  but  neglecting  the  United  States  and  Canada, 
the  other  giving  the  new  laws  and  codes  of  European  coun- 
tries. "The  European  volumes  are  very  good  for  the  most 
important  countries  of  Continental  Europe,  Portugal,  and  the 
smaller  states  of  Southeastern  Europe,  but  Great  Britain  is 
inadequately  treated  and  the  British  Colonies  are  hardly 
touched."     Full  texts  usually  given.      (Dodd.) 

Since  1897  current  Spanish  laws  have  appeared  in  the 
Anuario  de  Legislacion  y  Jurisprudencia  Espanolas.^'' 

The  same  publishers  issue  the  Revista  de  los  Tribunales  y  de 
Legislacion  Universal,  a  weekly  journal  in  three  parts,  part 
one  containing  a  Cronica  legislativa  universal,  part  three  being 
devoted  to  Spanish  legislation.  (Published  by  Editorial  G6ngora, 
Apartados  de  Correos,  nom.  152;  San  Bernardo,  50;  Madrid). 

More  recently  another  Spanish  society  has  come  into 
this  field  with  its  monthly  publication,  as  follows: 

Institutd  I  bero- Americano  de  Derecho  Positivo  Com- 
parado. 
-Revista  de  Legislaci&n  L'niversal  v  Jurisprudencia 

Espaiiola.     1908 . 

An  important  journal,  suspended  for  a  time,  but  now 
assured  of  government  support  which  will  permit  an  increase 
in  usefulness  and  influence.'* 

"•  None  of  later  imprint  than  1905. 
9*  The  latest  covers  1904. 
'"  The  latest  was  published  in  1905. 

'*  Cf.  Annual  Bulletin  of  the  Comparative  Law  Bureau  of  the 
Amer.  Bar.  Assn.,  July  1,  1913,  p.  107-8. 


Municipal  Reference  Libraries  153 

Next  to  these  publications  dealing  with  comparative 
foreign  legislation,  almost  if  not  entirely  to  the  exclusion 
of  other  subjects,  should  be  mentioned  another  type 
of  publication  to  which  recourse  for  foreign  law  data  may 
occasionally  be  had  with  profit,  though  it  does  not  devote 
itself  strictly  to  this  subject.  Examples  are  the  Revue 
Genirale  du  Droit,  de  la  Legislation  et  de  la  Jurisprudence 
en  France  et  a  L'Etranger^^  and  the  Revue  de  Droit 
International  et  de  Legislation  Comparee}'^^ 

Other  publications  represent  comparative  legislation 
in  a  more  restricted  sense  by  covering  a  single  field  of 
law  though  following  its  development  in  all  important 
countries.  Such  a  publication  as  the  Bulletin  of  the  In- 
ternational Labor  Ofiice  now  published  in  German, 
French  and  English  is  typical.  It  offers  extracts  and 
frequently  the  full  texts  of  both  national  and  inter- 
national labor  legislation.  Another  is  the  Annuaire 
International  de  Legislation  agricole,  volume  one  of  which 
covering  the  year  1911  was  published  by  the  International 
Institute  of  Agriculture  in  Rome  during  1912. 

Limiting  the  term  still  further  till  it  represents  only 
discussions  of  American  State  Legislation,  there  should 
be  named  the  American  Labor  Legislation  Review  issued 
quarterly  by  the  American  Association  for  Labor  Legis- 
lation in  New  York  City.  One  of  these  quarterly  bulle- 
tins is  an  annual  review  of  labor  legislation  throughout 
the  states  in  which  an  analysis  by  subjects  Is  followed 
by  a  topical  index  by  states.  The  proceedings  of  the 
society  appear  in  the  series  and  occasionally  numbers 
are  devoted  to  a  single  subject,  such  as  that  for  June, 
1912,  on  "Industrial  Diseases,"  which  contains  also  a 

"  Paris,  Fontemoing  et  C*^  4  Rue  le  Goff. 

"»  Bruxelles,  Bureau  de  la  Revue,  35  Place  de  I'lndustrie. 


154 


Law,  Legi^ti\'e  Reference  and 


forty-eight  page  bibliography.  In  June,  1911,  the  topic 
was  "Coanfort,  Health  and  Safety  in  Factories,"  die 
first  one  hundred  pa^es  <rf  which  afford  a  ccMnparatrve 
analyas  of  existing  laws.  Thai  fcdlows  a  tx^ical  criti- 
cism c^  these  laws  by  experts. 

One  of  the  most  valuable  pubhcadmis  of  any  asso- 
ciation finom  the  standpoint  of  comparatrve  state  law 
is  this: 

National  Association  of  Railway  CcMnmissioners. 

Proceedings  of  the  twent^'-third  Annual  Con- 
vention .  .  .  compiled  by  Herman  B.  Meters. 
1507  p.     Chicago,  Traffic  Service  Bureau,  cl912. 

Cosrtrains  in  additioii  to  tke  Pmeee^mgs  a  Digest  off  federal 
and  state  coort  dec^oios  (p.  lOS— 225));  Inteistale  Com- 
merce Laws  [  p.  225-265) ;  cofnpillatiam  e£  the  laws  off  tbe 
states  pertaining  to  raflways  anni  other  pmMic  service  corpofa- 
tions  (p.  266— 1-^0) ,  atrranged  a^ilialiecicallj*  hy  states. 

The  last  type  c^  publicaticm  is  that  in  which  compara- 
tive legislatioii  in  a  ^gle  fidd  is  chrcHiided  less  ex- 
tensi\-ely,  first  place  b^ng  given  to  discu^ons  raldier 
than  to  abstracts,  summaries,  or  full  tests  of  actual  law. 
In  this  ciass  would  cofne  the  Jounml  oS  die  Amoican 
Institute  of  Criminal  Law  and  CrimincJogy,  the  In- 
suTdnceLasw  Jomrmaif  th.e.3einMng  Law  Jowmal  and  othCTs 
of  a  similax  Eattcre. 

The  mo\-enient  in  the  United  States  tx>  secure  uniform 
legislation  on  a  number  of  subjects  is  advancing  witii  e3.zr. 
annxtal  conference  <rf  the  Commisaoners  cm  Unitcrni 
State  Laws- 

"The  Conference  of  Commissioaers  cm  Un:  ::r. 
State  Laws  is  made  up  of  commi^oneis  appemite^  '":  ;•  :  r.  r 
Governors  of  the  different  states,  meeting  in  c::.:v:-r.:e 
and  organizing  themselves  into  a  nadcmal  btxiy  for  zr.e 
better  accomplishment  of  the  work  for  wfaicji  its  mem.bers 


Municipal  Reference  Libraries  loo 

were  appointed  by  the  states.  The  commi^ionere, 
usually  one  from  each  state,  are  appointed  under  the 
laws  of  the  respecti\-e  states  creating  them,  usually 
for  five  years,  with  authority  to  confer  with  the  com- 
missioners of  the  other  states  and  reconmiend  forms 
of  bills  or  measiu-es  to  bring  about  imiformit\-  of  the  laws 
in  the  execution  and  proof  of  deeds  and  wills,  in  the 
laws  of  bills  and  notes,  marriage  and  dr^orce,  and  other 
subjects  where  such  imiformit\'  seems  practicable  and 
desirable.  .  . 

"The  time  of  the  Twent>--second  Conference  was 
largely  taken  up  in  the  consideration  of  the  proposed 
amendments  to  the  Negotiable  Instruments  Law,  the 
draft  of  an  act  on  the  subject  of  Marriages  in  Another 
State  or  Countr>-  in  the  E\-asion  or  Molation  of  the 
Laws  of  the  State  of  Domicile,  the  third  tentative  draft 
of  an  act  to  make  uniform  the  Law  of  the  Incorporation 
of  Business  Corporations,  the  draft  of  a  Workmen's 
Compensation  Act,  the  discussion  of  the  uniform  Part- 
nership Act.  the  Torrens  System  of  Registration  of  Land 
Titles,  and  the  Report  of  the  Committee  on  the  Situs 
of  Real  and  Personal  Property-  for  Purposes  of  Taxa- 
tion." 

In  the  proceedings  published  each  year  are  foimd 
a  list  of  the  commissioners  composing  the  conference, 
lists  of  committees,  reports  of  both  standing  and  special 
committees,  and  the  addresses  delivered  at  each  con- 
ference. 

The  address  of  the  President  usually  re\-iew5  the  pro- 
gress of  uniform  state  legislation  and  notes  the  results 
of  the  recommendations  of  the  Conference.  In  the  re- 
ports of  the  committees  are  frequentiy  found  drafts  of 
uniform  laws  as  recommended  bv  these  committees.   Each 


156  Law,  Legislative  Reference  and 

year  the  Proceedings  are  published  separately  in  full  and 
in  the  annual  volume  of  Reports  of  the  American  Bar 
Association  with  which  the  Commissioners  on  Uniform 
State  Laws  meet.^"^^ 

Closely  associated  with  the  movement  for  uniform 
state  laws  is  another  movement  which  may  prove  even 
more  effective.  That  is  the  attempt  being  made  more 
and  more  to  produce  drafts  of  so-called  model  laws  for 
the  several  states.  Uniform  legislation  is  almost  im- 
possible in  any  considerable  number  of  states  as  the 
legislative  amendments  and  varying  court  interpreta- 
tions of  "uniform"  laws  have  shown.  Model  laws,  how- 
ever, appear  to  some  a  far  more  desirable  goal  than 
uniform  laws  under  our  present  system  of  separate 
state  authority  and  local,  independent  interpretation  of 
legislative  intent. 

Two  illustrations  of  suggested  "model"  laws  follow. 

Fire  Marshal  Association  of  America. 

Suggestive  State  Fire  Marshal  Law.       13  p.       Xo\'. 
7,  1912. 

National  Board  of  Fire  Underwriters. 
Suggested  State  Laws. 
Transportation  and  Carriage  of  Explosives.     4p.    Sept.  1912 
Manufacture,  etc.  of  Explosives.     10  p.     Sept.  1912. 
Manufacture,  etc.  of  Matches.     4  p.     Sept.  1912. 
State  Fire  Marshal  Law.     10  p.     Dec.  1911. 

">'  The  Proceedings  may  be  obtained  from  the  President,  Charles 
Thaddeus  Terry-,  100  Broadway,  N.  Y.,  or  Clarence  N.  Woolley, 
Secretary.  The  general  field  of  the  work  covered  by  the  Confer- 
ence is  indicated  in  the  following  list  of  committees  appointed  for 
1912-13:  1.  P2xecutive  committee.  2.  Commercial  Law.  3.  Wills, 
Descent  and  Distribution.  4.  Marriage  and  Divorce.  5.  Convey- 
ances. 6.  Depositions  and  Proof  of  Statutes  of  other  States.  7. 
Insurance.  8.  Congressional  Action.  9.  Appointment  of  New  Com- 
missioners. 10.  Purity  of  Articles  of  Commerce.  1.  Uniform  Incor- 
poration Law.  12.  The  Torrens  System  and  the  Registration  of 
Land  Titles.    13.    Banks  and  Banking.    14.    Publicity;  and  Special 


Municipal  Reference  Libraries  157 

In  the  discussion  of  this  whole  subject  of  comparative 
legislation  the  publications  of  the  government  of  the 
United  States,  the  separate  states,  and  of  foreign 
governments  in  the  field  of  comparative  legislation, 
taken  up  earlier  in  the  text,  must  not  be  forgotten. 

(d)  Miscellaneous  Pamphlets. 
No  small  value  will  at  times  attach  to  pamphlets  as 
among  them  may  be  found  brief  summary  statements 
of  laws  or  accounts  of  attempts  to  apply  them.  Reprints 
of  articles  and  of  papers  read  before  societies,  and  argu- 
ments showing  the  views  of  an  individual  or  of  an  asso- 
ciation are  frequently  issued  in  this  form.  The  four 
titles  following  illustrate  useful  examples  of  compilations 
of  laws  so  published. 

Baldwin,  William  H. 

The  present  Status  of  Family  Desertion  and  non- 
support  Laws.     39  p.     Wash.  IQIL 

A  paper  delivered  at  the  National  Conference  of  Charities 
and  Corrections,  Boston,  Mass.,  June  10,  1911,  discussing  the 
laws  as  in  force  at  the  end  of  1910  and  presenting  the  uniform 
law  of  the  Commissioners  on  Uniform  State  Laws. 

Committee  of  Fifty,  Illinois. 

How  the  Uncared-for  Epileptic  fares  in  Illinois  — 
Colony  Care  the  Remedy  —  a  Plea  for  Immediate 
Legislative  Action — How  You  can  Help.   48  p.    1913. 

Includes  a  map  showing  states  that  have  colonies,  statis- 
tics regarding  existing  state  colonies  and  a  bibliography,  3p. 

Committees  on  Vital  and  Penal  Statistics;  Child  Labor  Legisla- 
tion; Compensation  for  Industrial  Accidents;  Situs  of  Real  and 
Personal  Property  for  the  Purposes  of  Taxation;  To  Co-operate  with 
the  American  Institute  of  Criminal  Law  and  Criminology;  A  Uni- 
form Law  Relating  to  Boilers  and  Their  Inspection;  Expert  Testi- 
mony in  Criminal  Proceedings;  Legislation  Relating  to  the  Use  of 
the  Flag;  Computation  of  Time.  The  President's  address  of  1912 
on  "Progress  of  Uniform  Legislation,"  is  the  latest  review  of  this 
kind  in  print.     (In  American  Bar  Ass'n.  Reports,  37:  1094-1113.) 


158  Law,  Legislative  Reference  and 

Hardy,  Rives  B. 

A  Digest  of  the  Laws  and  Practice  of  all  the  States 
of  the  Union  in  Reference  to  the  Employment  of  Con- 
victs.    17  p.     Richmond,  19n. 

Terry,  C.  T. 

Digest  and  Analysis  of  the  Motor  Vehicle  Laws  of 
the  various  States,  Territories  and  Federal  Districts 
of  the  United  States.  22  p.  American  Automobile 
Association,  1911. 

Contains  a  model  automobile  law. 

(e)  Correspondence. 

Just  as  printed  books  play  a  relatively  small  role  in 
legislative  reference  work,  so  that  of  correspondence  is 
unexpectedly  important.  Through  this  medium  is 
sought  information  regarding  what  investigations  may 
already  have  been  conducted  on  questions  that  come  up 
locally  for  the  first  time,  information  of  a  bibliographical 
character  from  libraries,  institutions,  and  individuals 
most  likely  to  possess  it,  and,  perhaps  most  valuable 
of  all,  the  opinions  of  experts  on  the  working  out  of 
certain  administrative  policies  and  their  advance  criti- 
cism of  proposed  laws.  Postage  is  therefore  no  inconsid- 
erable item  in  a  legislative  reference  bureau's  budget.  By 
correspondence  also  is  revealed  the  splendid  spirit  of 
co-operation  and  mutual  helpfulness  among  the  various 
bureaus  which  is  no  small  factor  in  the  efficiency  and 
success  of  all. 

(f)  Clippings. 

Special  libraries  of  many  types  have  found  it  of  dis- 
tinct advantage  to  maintain  files  of  clippings  from  news- 
papers, magazines,  and  society  proceedings,  and  on 
occasion  have  not  hesitated  to  pull  to  pieces  bound  books. 


Municipal  Reference  Libraries  159 

classifying  the  portions  needed  with  the  other  literature 
in  the  library  on  the  specific  topic  treated  in  the  excerpt. 
That  this  is  recognized  as  a  procedure  peculiarly  appro- 
priate to  the  legislative  reference  library  is  made  specially 
clear  in  the  Report  to  Congress  on  Legislative  Reference 
Bureaus,  by  Dr.  Putnam,  Librarian  of  Congress.  He  says : 

"A  legislative  reference  bureau  goes  further.  It  under- 
takes not  merely  to  classify  and  to  catalogue,  but  to 
draw  off  from  a  general  collection  the  literature  —  that 
is,  the  data  —  bearing  upon  a  particular  legislative 
project.  It  indexes,  extracts,  compiles.  It  acquires 
extra  copies  of  society  publications  and  periodicals  and 
breaks  these  up  for  the  sake  of  the  articles  pertinent  to 
a  particular  subject.  It  clips  from  newspapers;  and  it 
classifies  the  extracts,  the  compilations,  the  articles,  and 
the  clippings  in  scrapbook,  or  portfolio,  or  vertical  file 
in  such  a  way  that  all  material  relating  to  that  topic  is 
kept  together  and  can  be  drawn  forth  at  a  moment's 
notice.  To  printed  literature  it  often  adds  written 
memoranda  as  to  fact  and  even  opinion  as  to  merit 
which  it  secures  by  correspondence  with  experts." 

An  important  question  arises  in  connection  with 
clippings.  Should  the  library  undertake  to  do  its  own 
reading  and  clipping  or  should  it  rely  upon  a  clipping 
bureau  for  all  or  part  of  this  work?  Two  important 
contributions  have  recently  been  made  toward  a  solution 
of  this  question,  both  carry  weight  and  are  of  present 
interest.  The  first  is  a  report  of  the  committee  investi- 
gating the  use  and  methods  of  handling  and  filing  news- 
papers made  to  the  Special  Libraries  Association  at  the 
Kaaterskill  Conference,  1913.^"^  Merely  the  conclusions 
of  this  illuminating  report  will  be  given.  It  concludes 
thus: 

1"^  Printed  in  Special  Libraries  4:  157-161,  Sept.-Oct.,  1913;  also 
reprinted  separately.  Jesse  Cunningham,  Librarian,  School  of  Mines, 
Rolla,  Mo.,  Chairman  of  the  Committee. 


160  Law,  Legislative  Reference  and 

"L  This  investigation  shows  that  the  chief  source  of 
cHppings  is  independent  reading  and  cHpping  by  the 
institutions  themselves.  The  service  of  the  clipping 
bureau  seldom  meets  the  needs  and  for  scientific  and 
technical  purposes  is  almost  valueless.  The  needs  of 
each  institution  are  better  satisfied  when  the  clipping 
and  collecting  is  done  by  the  institution's  staff  who  are 
thoroughly  familiar  with  the  demands  to  be  met. 

"2.  The  Dewey  decimal  classification  and  its  various 
expansions  is  most  widely  used.  The  alphabetical  ar- 
rangement by  subjects  following  the  headings  of  the 
Readers'  Guide  to  Periodical  Literature  ranks  alongside 
the  Dewey  and  has  many  advocates. 

"3.  The  manila  and  card  board  mounts  with  the  clip- 
pings pasted  on  them  in  such  a  way  as  to  allow  binding 
and  shelving  with  other  material  on  the  same  subject 
seems  a  satisfactory  method  of  filing.  Large  and  valu- 
able pieces  are  bound  as  books.  Vertical  files  have  their 
advocates  and  are  used  extensively. 

"4.  The  Dewey  decimal  system  of  classification  pro- 
vides its  own  relative  index.  The  alphabetical  arrange- 
ment by  subjects  is  self-indexing  and  there  is  the  Readers' 
Guide  in  addition.  Full  cataloguing  of  clippings  is 
ideal,  but  expensive. 

"5.  The  ephemeral  character  of  the  material  requires 
constant  elimination,     {sic.) 

"6.  Clippings  may  be  used  the  same  as  books  and  are 
often  required  to  supplement  printed  books  which  are 
out  of  date  as  soon  as  published.  For  debate  work  and 
legislative  reference  they  have  great  value. 

"7.  The  advantages  claimed  for  clippings  are  their 
up-to-dateness,  timeliness,  small  cost,  convenience  to  send 
by  post,  flexibility,  compactness,  and  they  are  very  fre- 
quently the  only  material  to  be  had  on  a  subject  when 
it  is  alive.  A  leading  disadvantage  is,  the  material  is 
not  entirely  reliable,  often  being  found  inaccurate  and 
sometimes  entirely  wrong  and  misleading.  The  labor 
and  cost  of  arranging  is  great.  They  arc  difficult  to 
index  and  the  tendency  is  to  accumulate  too  much  dead 
material." 


Municipal  Reference  Libraries  IGl 

The  other  contribution  to  the  discussion  is  an  exposi- 
tion of  the  methods  of  the  cHpping  bureau  itself,^"'  a  de- 
fense of  its  work,  and  a  plea  for  fairness  in  passing 
judgment.  The  Hbrarian  is  charged  "with  failure  to 
analyze  the  work  of  acquiring  and  storing  information," 
a  work  "partly  manual  and  partly  mental.  The  clipping 
bureau  is  qualified  to  do  much  of  the  manual  labor,  some 
of  the  mental.  What  it  is  competent  to  do,  it  does  at 
a  great  saving  of  cost."  The  greatest  obstacle  in  the 
way  of  harmonious  relations  with  customers,  Mr.  Luce 
finds,  is  their  "tendency  to  appraise  our  product  item  by 
item  rather  than  in  the  mass.  .  .  .  Each  of  our  readers 
must  try  to  bear  in  mind  the  wants  of  a  great  many 
persons.  To  pass  careful  judgment  on  each  of  20,000 
clippings  a  day  that  are  sent  out,  would  slow  down  the 
work  so  that  prices  would  have  to  be  much  raised.  .  .  . 
So  in  the  long  run  we  find  it  cheaper  to  send  out  many 
clippings  that  greater  exercise  of  discrimination  would 
reject.  This  is  taken  into  account  in  the  scale  of  charges. 
So  we  think  it  fair  for  the  customer  to  pass  judgment  on 
the  value  of  the  service  as  a  whole." 

The  mechanics  of  clipping  bureau  work  are  detailed 
in  a  way  which  shows  clearly  that  the  winnowing  should 
be  left  to  the  specialist,  and  Mr.  Luce's  claim  is  that  "a 
single  nugget  in  a  cradle-full  of  gravel  may  far  more 
than  repay  the  whole  cost."  He  pleads  for  a  mutual 
understanding  of  each  other's  needs  and  difficulties, 
urges  co-operation  by  all  concerned,  and  the  broad  re- 
quest rather  than  the  specific,  as  the  latter  may  be  lost 
sight  of  in  the  thousands  of  topics  watched  while  the 
wholesale  order  will  catch  the  specific  items  as  well. 

'"^  Robert  Luce,  President  of  the  Luce  Clipping  Bureau,  on  "The 
Clipping  Bureau  and  the  Library."  (In  Spec.  Libs.  4:  152-57; 
Sept.-Oct.,  1913. 


162  Law,  Legislative  Reference  and 

The  two  studies  desen'e  careful  consideration  from  all 
interested. 

(g)  Bibliographical  Aids  (Bibliographies  and 
Indexes). 

The  number  of  bibliographical  aids  which  might  be 
consulted  with  profit  at  one  time  or  another  in  the 
legislative  reference  library  is  already  great  and  is 
constantly  growing  greater.  New  ventures  in  biblio- 
graphical work  are  adding  variety  as  well  as  numbers 
to  this  form  of  undertaking,  and  many  such  undertak- 
ings can  be  made  of  direct  use  in  legislative  reference 
work  when  the  original  purpose  was  one  quite  apart 
from  this. 

Some  of  the  bibliographical  aids  which  received  con- 
sideration^^^  in  the  discussion  of  law  libraries  are  of  equal 
value  in  the  present  connection.  Mr.  Borchard's 
"Guides  to  Foreign  Law,"  the  Bibliography  of  Legal 
Science,  and  Wigmore's  Preliminary  Bibliography  of 
Criminal  Law  and  Criminology  are  examples. 

Again,  earlier  pages  of  the  present  text  have  considered 
the  bibliographical  aids  to  be  used  with  federal  and 
state  documents,  the  value  of  periodicals  as  sources  of 
bibliographical  information  on  current  literature,  and 
the  serial  indexes  to  periodical  literature  generally,  all  of 
which  have  distinct  value  from  the  present  point  of  view. 

A  summary  statement  of  the  principal  types  of  bibli- 
ographical aids  of  value  to  the  legislative  reference 
library  might  be  made  in  the  following  form. 

L     Bibliographies  Issued  Separately. 

e.g.,  Farnam,  Henry  W.,  comp. 

Bibliography  of  the  Department  of  Economics 
and  Sociology  of  the  Carnegie  Institution  of  Wash- 
ington.    17  p.     Wash.     1912. 

"•*  p.  37-45,  supra. 


Municipal  Reference  Libraries  163 

Harvard  l^niversity. 

A  Guide  to  Reading  in  Social  Ethics  and  allied 
Subjects;  Lists  of  Books  and  Articles  selected  and 
described  for  the  Use  of  general  Readers.  265  p. 
Cambridge.     1910. 

Classified,  annotated,  and  indexed. 

Stammhammer,  Josef. 

Bibliographic  der  Social-Politik.  2v.  Jena.  1896- 
1912. 

Vol.  1  published  in  1896,  vol.  2  covers  1895-1911  and  supple- 
ments vol.  1.  An  alphabetico-classed  list,  exceedingly  com- 
prehensive, including  magazine  articles  and  separates. 

Talbot,  Winthrop. 

A  Select  Bibliography  of  recent  Publications  on 
Helpful  Relations  of  Employers  and  Employed. 
112  p.     Cleveland.     1912. 

A  classified  and  annotated  list  with  separate  author  and 
subject  indexes;  a  very  useful  bibliography  but  bearing  some 
evidence  of  careless  revision. 

United  States  Catalog:  Books  in  Print,  1911.  2837  p. 
H.  W.  Wilson,  Minneapolis.     1912. 

An  author,  subject,  and  title  catalogue  of  about  150,000 
American  books  in  print  January  1,  1912,  and  of  all  American 
books  published  since  January  1,  1905.  Includes  govern- 
ment documents  of  general  interest  and  lists  bibliographies 
under  the  proper  subject  headings  with  the  sub-head,  "Bibli- 
ography." Library  of  Congress  printed  catalogue  card  num- 
bers are  attached  to  entries.  Supplemented  by  the  next 
item. 

Cumulative  Book  Index,  Fifteenth  Annual  Cumu- 
lation; Author,  Title  and  Subject  Catalog  in  one 
Alphabet  of  Books  published  in  1912.  Minneapolis, 
H.  W.  Wilson.     1913. 

Compiled  by  Marion  E.  Potter  and  Emma  L.  Teich. 

2.     Bibliographies  in  Books. 

e.g.,  Frankel,  Lee  K.  and  Dawson,  Miles  M. 

Workingmen's  Insurance  in  Europe  .  .  .  with  the 
Co-operation  of  Louis   I.   Dublin.     477  p.     N.   Y. 
Charities  Publication  Committee,  1911. 
"Partial  Bibliography,"  p.  437-42. 


164  Law,  Legislativ^e  Reference  and 

Jones,  Chester  Lloyd. 

Statute  Law  Making  in  the  United  States.  327  p. 
Best.     Boston  Book  Co.     1912. 

"A  selected  list  of  books  on  statute  law,"  p.  ix-x. 

King,  Clyde  Lyndon,  ed. 

.  .  .  The  Regulation  of  Municipal  Utilities.  .  .  . 
404  p.     N.  Y.     D.  Appleton.     1912. 
"A  Selected  Bibliography,"  p.  387-391. 

3.     Bibliographies  in  Periodicals. 

Some  periodicals  are  themselves  bibliographies. 

e.g.,  A.  L.  A.  Booklist,  Chicago. 

A  monthly  annotated  guide  to  current  books,  published  by 
the  American  Library  Association  and  seeking  primarily  to 
aid  the  smaller  libraries  in  book  selection. 

Bibliography    of    Social    Science,    v.     1-8,     1905-12. 

Chicago. 

The  Journal  of  the  International  Institute  of  Social  Bibli- 
ography, issued  monthly  in  English,  German,  French,  Italian, 
Russian,  and  Hungarian. 

Superseded  January,  1913,  by  the  Bibliographic  der  Sozial- 
wissenschaften   herausgegeben   im   Auftrage   des   Reichsamt  des 
Innern.     (Berlin.) 
Book  Review  Digest   Jan.  1906 ,  v.  1 ,  Minne- 
apolis. 

A  monthly   publication  cumulating  quarterly  and   yearly; 
contains  extracts  from  reviews  in  about  forty-five  American 
and  English  journals. 
Cumulative    Book    Index.       v.     1 ,    Minneapolis. 

1898—. 

A  monthly  publication  cumulating  quarterly  and  yearly; 
a  dictionary  catalogue  of  books  published,  supplementing  each 
month  the   United  States  Catalog. 

Publishers' Weekly,    v.  1 ,  New  York.     1872 . 

A  book-trade  periodical  containing  a  list  of  the  books  of  the 
week  with  descriptive  notes  by  the  publishers;  cumulates 
monthly,  quarterly,  and  annually. 

The  leading  political  and  economic  journals  and 
many  others  offer  bibliographical  data  in  the  shape  of 
reviews  and  notes  of  current  publications  and  events, 
and  usually  present,  in  addition,  a  separate  bibliography 


Municipal  Reference  Libraries  165 

of  current  literature  in  their  respective  fields.  The  jour- 
nals given  illustrate  this  in  the  sections  or  departments 
specified. 

American  Academy  of    Political  and  Social  Science. 

Annals,     v.  1 ,  Philadelphia.     1890 . 

In  each  issue,  which  covers  a  single  subject,  is  a  "Book 
Department,"  containing  "notes"  on  a  considerable  numl>er 
of  recent  publications  and  longer  "Reviews"  of  about  ten  new 
books. 

American  Economic  Review,     v.  1 ,  Princeton,  N.  J. 

1911 . 

Gives  "Reviews  and  Titles  of  New  Books,"  "Documents,  Re- 
ports and  Legislation,"  and  "Periodicals"  (abstracts). 

American   Journal  of  Sociology,     v.    1 ,    Chicago. 

1893 . 

Contains  "Reviews,"  "Recent  Literature:  Notes  and  Ab- 
stracts," and  "Recent  Literature:    Bibliography." 

The   American    Political   Science    Review,     v.   1 , 

Baltimore.     1896 -. 

Contains  "Notes  on  Current  Legislation,"  "Current  Municipal 
Affairs,"  "News  and  Notes:  Persona!  and  Bibliographical," 
"Book  Reviews,"  "Recent  Government  Publications  of  Political 
Interest,"  and  "Index  to  Recent  Literature,  Books,  and  Peri- 
odicals." 

The  Economic  Journal,     v.  1 ,  London.     1891 . 

Contains  "Reviews,"  "Notes  and  Memoranda"  (including 
notes  of  British  government  documents),  and  "Recent  Periodicals 
and  New  Books." 

The  Journal  of  Political  Economy,     v.  1 ,  Chicago. 

1892 . 

Contains  "Notes"  and  "Book  Reviews  and  Notices." 

National  Municipal  Review,     v.  1 ,   Philadelphia. 

1912 -. 

Sections  on  "Notes  and  Events"  cover  I.  Government  and 
Administration,  11.  Functions,  III.  City  Planning  and  Improve- 
ment, IV.  Politics,  V.  Conferences  and  Associations,  VI.  Educa- 
tional and  Academic,  VI I.  Social  and  Miscellaneous. 

Other  sections  are  "Department  of  Legislation  and  Judicial 
Decisions;"  "Department  of  Reports  and  Documents,"  part  I, 
Critical  and  Interpretive,  part  II,  Bibliographical;  "Book 
Reviews." 


166  Law,  Legislative  Reference  and 

Political  Science  Quarterly,    v.  1 , Boston.    1886 . 

Contains  "Reviews,"  "Record  of  Political  Events"  (June  and 
December  issues),  "Book  Notes"  (March  and  September). 

Quarterly  Journal  of  Economics,     v.  1 ,  Cambridge, 

Mass.     1886 . 

"Reviews,"  "Notes  and  Memoranda,"  and  "Books  Received." 

Revue  de  Science  et  de  L6gislation  Financi^res.  v.  1 , 

Paris.      1902 . 

Contains   "Bulletin   Bibliographique"   and   "Index   Bibliogra- 
phiquc." 
Revue  des Sciences  Politiques.  v.  1 ,  Paris.    1885 . 

Contains  "Bibliographic"  made  up  of  Comptes  rendus  critiques, 
Analyses,  and  Ouvrages  envoyes  d  la  redaction. 

Revue  Economique  internationale.    v.  1 ,  Bruxelles. 

1904 . 

The  section  on  "La  Vie  Scientifique"  contains  Revue  des  Livres. 

Each  number  contains  a  monthly  fascicule  of  the  Bibliographia 
Economica  Universalis  characterized  as  a  Repertoire  Bibliogra- 
phique des  Travaux  Relativs  aux  Sciences  Economiques  et  Sociales 
(Livres,  Memoires,  Articles  de  Revues). 

Special  Libraries,     v.  1 ,  Indianapolis.     1910 , 

Usually  contains  a  separate  bibliography  on  some  current 
public  affairs  question,  a  list  of  recent  bibliographies,  and  a  list 
of  recent  references  to  various  public  affairs  topics. 

One  of  the  best  sources  for  current  bibliographical  informa- 
tion on  public  utilities,  rates,  valuation,  etc. 

What  bibliographies  have  been  published  during  a 
given  year  or  whether  or  not  a  bibliography  of  a  given 
subject  is  in  print  can  best  be  learned  by  consulting 
the  bibliographies  of  bibliography  like  Courtney's 
Register  of  National  Bibliography,'^^^  the  list  furnished 
each  year  in  the  Annual  Library  Index,  the  United 
States  Catalog  under  the  particular  subject,  sub-division 
''Bibliography  '  and  the  Cumulative  Book  Index.  Bibli- 
ographies published  by  libraries  are  indexed  each  year 
in  the  Bulletin  of  Bibliography }^^  The  cumulated  index 
to  volumes  1-3  of  Special  Libraries  is  particularly  valu- 

»»»  3  V.  Lond.     Constable,   1905-191L     For  additional  titles  see 
Kroeger  Guide  and  Supp. 
'»«  See  p.  321,  post. 


Municipal  Reference  Libraries  167 

able   in   this   connection   as   so  many   important   bibli- 
ographies are  noted  in  each  issue. 

4.  Indexes  to  Documents. 

e.g.,  Cf.  The  indexes  to  federal  and  state  documents, 
p.  109-13,  114,  125-28  iw/m. 

5.  Indexes  to  Books. 

Indexes  to  single  books  frequently  serve  a  double 
purpose.  They  reveal  the  subjects  treated  of  in  the  book 
itself  and  at  times  surprise  the  searcher  with  a  bit  of 
unexpected  and  welcome  information.  The  index  may 
also  reveal  the  fact  that  a  much  needed  title  has  been 
quoted  from  in  the  text  in  hand  to  an  extent  satisfying 
present  needs;  or,  it  may  reveal  a  citation,  recourse  to 
which  leads  to  the  whereabouts  of  important  information. 
These  facts  are  obvious,  but  in  the  hurry  of  ready  refer- 
ence work  are  apt  to  be  overlooked. 

e.g.,  The  index  to  Beard  and  Shultz  Documents  on  the 
State-wide  Initiative,  Referendum  and  Recall  reveals 
the  presence  of  the  "Iowa  Commission  Govern- 
ment Law"  provisions  on  these  subjects,  and  the  fact 
that  the  initiative  and  referendum  provisions  of  the 
Oklahoma  constitution  have  been  upheld  by  the 
Oklahoma  Supreme  Court, 

The  index  to  Reinsch's  Readings  on  American  State 
Government  reveals  the  presence  of  Senator  Bourne's 
long  speech  on  "Popular  Government  in  Oregon" 
which,  in  turn,  notes  the  votes  for  and  against  meas- 
ures submitted  to  the  people  from  1904  to  1908. 

Analytical  indexes  to  sets  of  books  and  to  miscella- 
neous writings  have  their  special  uses. 

e.g.,  A.  L.  A.  Index;  an  Index  to  General  Literature. 

Ed.     2  enl.     679  p.     Bost.     [A.   L.   A.    Publishing 

Boardl.     1901. 


168  Law,  Legislative  Reference  and 

Annual  Library  Index,  1892-,  N.  Y.  Publishers'  Weekly, 
1893-. 

Through  1910  this  contained  each  issue  an  index  to  parts  of 
books,  essays,  etc.,  supplementing  the  A.  L.  A.  Index. 

This  publication,  formerly  known  as  "the  annual  Poole," 
because  of  its  index  to  magazine  articles  no  longer  indexes  either 
periodicals  or  books.  It  provides,  however,  an  annual  "Index 
to  Dates  of  Current  Events,"  "Necrology  of  Writers,"  list  of 
"Bibliographies  Published,"  "The  Year  in  Books,"  ''Peri- 
odicals," "Organizations,"  "Select  List  of  Libraries  in  the  United 
States  and  Canada,"  "Leading  Libraries  of  the  World," 
"Private  Book  Collectors,"  "Directory  of  Publishers,"  "Direc- 
tory' of  Booksellers." 

Readers'    Guide    to    Periodical    Literature,      v.    1 , 

Minneapolis.     1901 . 

In  each  issue  indexes  some  fifteen  to  twenty  books  of  gen- 
eral interest,  including  those  dealing  with  political  ques- 
tions, books  usually  of  a  more  or  less  composite  nature. 

6.     Indexes  to  Periodical  and  Society  Proceedings. ^°^ 

Among  the  publications  of  this  type  should  fall  in- 
dexes to  single  sets  of  periodicals  and  society  proceedings 
and  the  general  indexes  to  magazine  literature. 

e.g.,  American  Academy  of  Political  and  Social  Science 
Publications.     52  p.     Philadelphia,  1912. 

American  Economic  Association. 

Publications  .  .  .  General  Contents  and  Index  of 
Volumes  I  to  XI,  1886-1896.     52  p.     N.  Y.   Macm. 

American  Political  Science  Association. 

Classified  List  of  Papers  .  .  .1905-March,  1913. 
23  p.     1913. 

Covers  the  Proceedings  and  the  American  Political  Science 
Review. 

107  p'or  extended  lists  of  indexes  to  periodicals,  society  proceedings, 
and  in  special  fields  consult  Kroeger's  Guide,  p.  8-15;  Supplement 
1909-1910  by  Mudge,  p.  7-8.  For  recent  discussions  of  periodical 
indexes  see  "History-  of  Indexes  to  General  Periodicals"  in  Readers' 
Guide,  13:  (Preface  pages),  June,  1913;  and  H.  W.  Wilson's  "Peri- 
odical Indexes  — A  Reply,"  in  Lib.  Journal  38:  591-92,  Oct.,  1913. 


Municipal  Reference  Libraries  169 

Jahrbiicher  fiir  Nationalokonomie  und  Statistik  .  . 
Register  Band  1-75  und  Supfolementhcft  1-21  bear- 

beitet  von  Dr.  F.  Wissowa.     296  p.     Jena.     1902. 
.     Gencralregister  zu    Band   76-95  .   .  .  1901- 

1910  bearbeitet  von  Peter  Schmidt.     213  p.     Jena 
1912. 

Quarterly  Journal  of  Economics. 

Index   of   Authors  and   Subjects,  Volumes    1-25, 

1886-1911.  p.  771-815.  Cambridge.  August,  1911. 
Annual    Magazine   Subject-Index,     v.  1 ,   Boston. 

1908 . 

Formerly  issued  quarterly  in  the  Bulletin  of  Bibliography,  the 
Boston  Book  Co. 

Index  to  Legal  Periodicals  and  Law  Library  Journal. 

V.  1 ,  Chicago.     1907 . 

Published  quarterly  by  the  American  Association  of  Law 
Libraries. 

Industrial  Arts  Index,     v.   1-,   Minneapolis.     H.  W. 
Wilson,  1913-. 

A  new  and  apparently  successful  venture  in  fields  hitherto 
unexplored;  makes  available  articles  on  legislation  affecting 
trades. 

Readers'     Guide     to     Periodical     Literature,     1900-. 

V.  1 .     Minneapolis.     1901 . 

Issued  monthly  with  quarterly  and  yearly  cumulations. 

Readers'  Guide  to  Periodical  Literature  Supplement, 

March,  1913-.     v.  1 .Minneapolis.     1913 . 

"An   index   to   general   periodicals   not   now   indexed   in   the 

Reader's  Guide  and  which  are  subscribed  for  by  large  libraries.  .  . 

Issued  bi-monthly  omitting  July,  each  issue  fully  cumulated." 

7.  Indexes  to  Newspapers  and  Dates  of  Current  Events. 
In  addition  to  their  value  as  a  key  to  particular 
newspapers,  newspaper  indexes  in  referring  to  news  by 
dates  may  be  used  in  connection  with  any  representative 
paper.  The  New  York  Daily  Tribune  formerly  published 
a  yearly  index  but  this  ceased  in  1906.    The  London  Times 


170  Law,  Legislative  Reference  and 

has  published  an  index  since  1817  which  is  still  kept 
up  quarterly.  Beginning  with  1913  the  New  York 
Times  has  issued  a  quarterly  index.  A  number  of  state 
libraries  or  library  commissions  maintain  indexes  to 
local  news,  some  of  which  have  occasionally  been  printed. 
Massachusetts,  California,  Texas,  and  Wisconsin  are 
illustrations. 

Recent  general  indexes  are: 

Index  to  Current  Events,  v.  1,  Wisconsin  Library 
Commission.     Madison.     1907-1908. 

Based  on  the  Milwaukee  papers;   the  first  part  covers  general 

news,  the  second  Wisconsin  only. 

Index  to  Dates  of  Current  Events,  v.  1-,  R.  R. 
BowkerCo.     N.  Y.     1912-. 

Monthly    with    annual   and    semi-annual    cumulations.     The 

annual  cumulation  appears  also  in  the  American  Library  Annual, 

noted  above. 

Street's  Pandex  of  the  News,  1908;  a  Cumulative  In- 
dex and  Digest  of  the  Newspapers  of  the  United  States, 
ed.  and  comp.  bv  Arthur  I.  Street.     343  p.     Pandex  Co., 

Chic.     1909. 

No  more  published.     The  digest  feature  was  specially  helpful 
and  more  developed  than  in  the  other  indexes.'"* 

3.     Handling  of  MateriaL 

(a)     Staff    Organization    and    the     Division 
OF  Labor. ^*^ 

Primarily,  of  course,  the  amount  of  financial  support 
to  be  counted  upon  is  the  paramount  factor  in  determin- 

108  In  connection  with  bibliographies  and  indexes  the  reader  is 
referred  to  p.  31,  32,  37-4."),  109-13,  114,  12.5-2S,  supra. 

109  The  best  available  data  in  print  on  organization  will  be  found 
in  J.  David  Thompson's  "Report  to  the  Committee  on  Existing 
Agencies  for  rendering  Expert  Assistance  to  Members  of  Legisla- 
tures." Appendix  B,  p.  24-39  of  this  committee's  Report  to  the 
American  Bar  Association,  1913;  in  Dr.  Putnam's  Report  on  Legis- 
lative Reference  Bureaus  (S.  D.  7,  62d  Cong.  1st  Sess.);  in  the  Hear- 
ings held  by  both  the  Senate  and  House  Committees  which  con- 
sidered the  various  proposals  before  Congress,  and  in  the  several 
articles  on  library  technique  in  legislative  reference  libraries  listed 
on  p.  428,  post. 


Municipal  Reference  Libraries  171 

ing  staff  organization  and  the  division  of  labor  in  a 
legislative  reference  library. 

Next  comes  the  question  of  duties  assigned  by  law. 
If  bill-drafting  is  specifically  made  a  duty  of  the  legis- 
lative reference  bureau  this  fact  necessarily  plays  an 
important  part  in  the  question  of  organization. 

The  legislative  reference  bureaus  in  Illinois,  Indiana, 
Michigan,  Nebraska,  New  Hampshire,  North  Dakota, 
Ohio,  Pennsylvania,  South  Dakota,  Texas,  Vermont, 
and  Wisconsin  are  expressly  authorized  by  statute  to 
render  assistance  to  members  of  the  legislature  in  the 
drafting  of  bills. i^"  In  California,  Connecticut,  Massa- 
chusetts, and  New  York  drafting  agencies  exist  which 
are  directly  connected  with  the  legislature  itself  and  have 
no  connection  with  the  state  library  or  with  a  legislative 
reference  library. ^^^  The  new  California  law  establishing 
a  "legislative  counsel  bureau"  specifically  provides, 
however,  that  "the  material  ...  of  the  state  library 
shall  be  made  available  to  said  bureau"  and,  while  creat- 
ing a  drafting  bureau  almost  exclusively,  will  permit 
of  any  library  work  that  might  be  deemed  advantageous 
to  the  primary  purpose  of  the  bureau. 

Concrete  illustration  of  the  present  organization  of 
two  or  three  of  these  reference  and  drafting  bureaus 
may  be  useful  in  addition  to  the  text  of  the  legal  re- 
quirements regarding  organization  found  in  the  formal 
legislation  establishing  them.*^^ 

The  reorganized  Bureau  of  Legislative  and  Adminis- 
trative Information  of  Indiana  has  as  its  permanent 
staff  a  Director,  Librarian,  Assistant  Librarian,  Statis- 

11"  See  laws  in  apx.,  p.  347-379. 
Ill  See  laws  in  apx.,  p.  347—379. 
1"  See  apx.,  p.  347-349. 


172  Law,  Legislative  Reference  and 

tician.  two  stenographers,  and  one  assistant.  The  mu- 
nicipal reference  work  of  the  bureau  is  in  charge  of  Pro- 
fessor Frank  G.  Bates  of  the  I'niversity  of  Indiana. 
In  addition  to  this  permanent  force  it  is  planned  to 
have,  during  the  next  session  of  the  legislature,  at  least 
two  attorneys,  several  additional  stenographers,  and  what- 
ever extra  assistance  may  at  the  time  appear  necessary. 

The  director  states  that  the  duties  of  the  members  of 
the  staff  are  not  definitely  fixed  and  may  overlap  a 
little.  "Our  procedure,"  he  writes,  "is  to  do  the  thing 
which  immediately  needs  to  be  done  even  if  you  have  to 
take  the  whole  force  from  their  work  to  do  it."  In  the 
division  of  labor  the  time  of  the  director  is  given  over 
largely  to  general  work,  planning,  and  special  research. 
The  librarian  does  the  cataloguing  and  considerable 
research,  and  is  aided  by  the  assistant  librarian  whose 
special  task  is  to  keep  in  touch  with  organized  activities  in 
the  field  of  public  affairs.  The  statistician  does  research 
work,  prepares  special  bulletins,  and  handles  the  bill- 
drafting.  The  attorneys  will  have  the  duty  of  examin- 
ing legislation  and  passing  judgment  upon  it  from  the 
standpoint  of  form. 

Each  staff  member  is  also  assigned  various  publica- 
tions and  is  expected  to  watch  other  sources  for  informa- 
tion pertinent  to  the  needs  of  the  bureau. 

A  board  consisting  of  the  Governor,  the  State  Librarian, 
the  Presidents  of  Indiana  and  Purdue  Universities  and 
one  additional  member  appointed  by  the  Governor,  con- 
trols the  bureau,  appoints  the  director,  and  fixes  his 
salary  and  tenure.  The  director  appoints  the  remainder 
of  the  staff  and  fixes  their  compensation.  The  bureau 
also  is  authorized  to  furnish  to  municipalities  informa- 
tion relating  to  any  phase  of  local  government  on  a 


Municipal  Reference  Libraries  173 

request  from  local  officials.  An  appropriation  of  $13,500 
is  available  annually  while  $2,500  additional  was  made 
available  April  1, 1913,  for  organization  work. 

The  bureau  is  located  in  the  State  House  at  Indian- 
apolis, convenient  to  the  State  Law  Library,  the  State 
Library,  and  the  legislative  halls. 

Mr.  John  A.  Lapp,  director  of  the  bureau,  has  recently 
organized  a  "Public  Affairs  Information  Service"  which 
distributes  to  its  forty  co-operating  libraries  and  other 
institutions  information  in  regard  to  current  publica- 
tions, and  current  undertakings  of  all  sorts  relating  to 
public  affairs.  The  information  is  supplied  by  the  co- 
operating agencies,  by  clipping  bureaus,  and  by  special 
research  on  the  part  of  the  Indiana  bureau. 

A  number  of  mimeographed  bulletins  have  been  sent 
out  and  the  service  bids  fair  to  become  the  leading  co- 
operative agency  among  legislative  and  municipal 
reference  libraries  and  research  bureaus. 

Mr.  Lapp  as  director  of  this  bureau  and  manager 
of  this  service,  as  managing  editor  of  Special  Libraries, 
an  associate  editor  of  the  National  Municipal  Review, 
and  an  active  member  of  both  the  American  Political 
Science  Association  and  the  National  Municipal  League, 
is  taking  advantage  of  a  unique  opportunity  to  render 
permanently  valuable  service  in  American  public  affairs 
movements. 

The  Legislative  Reference  Library  of  Wisconsin  is  a 
department  of  the  Wisconsin  Free  Library  Commission. 
This  commission  consists  of  the  State  Superintendent 
of  Public  Instruction,  the  Secretary  of  the  State  His- 
torical Society,  the  President  of  the  University  of  Wis- 
consin, and  two  others  appointed  by  the  Governor. 
It  conducts  also  a  Library  School,  a  Traveling  Library 


174  Law,  Legislative  Reference  and 

Department,  and  a  Department  of  Library  Extension 
and  Visitation.  Each  department  has  its  chief.  The 
executive  officer  of  the  commission  is  its  Secretary. 

The  legislative  reference  library  is  internally  com- 
posed of  two  departments,  at  least  during  sessions  of 
the  legislature.  One  is  the  library  proper  and  the  other 
the  bill-drafting  department.  Both  are  under  the  direct 
super\^ision  of  the  chief  of  the  legislative  reference 
library-,  Dr.  Charles  McCarthy,  who  has  complete  con- 
trol of  the  entire  staff.  All  members  of  the  staff,  in- 
cluding stenographers,  are  responsible,  however,  to 
the  first  assistant,  who  directs  the  work  done  in  the 
general  office.  The  cataloguing  and  regular  library  work 
proceed  very  much  in  the  same  manner  as  in  any  other 
library.  Two  assistants  devote  their  time  almost  ex- 
clusively to  cataloguing  and  classifying,  though  when 
it  becomes  necessary  every  member  of  the  department 
may  be  put  to  work  at  reference  questions.  Two  other 
members  of  the  staff  devote  their  time  almost  exclu- 
sively to  reference  work.  The  time  of  one  person  is 
given  over  entirely  to  clipping  and  pasting  magazine 
and  newspaper  articles  which  have  been  previously 
marked  by  the  chief  or  his  first  assistant.  A  large 
amount  of  copying  is  done  of  laws  and  papers  which 
cannot  be  obtained  in  duplicate. 

Between  sessions  of  the  legislature  reference  w'ork  is 
done  for  members  wishing  to  study  various  questions 
or  for  those  who  are  interested  in  the  general  legislative 
movement  throughout  the  country-.  During  sessions 
the  main  strength  of  the  department  is  devoted  to  the 
reference  work  which  comes  up  in  connection  with  the 
drafting  of  bills,  or  at  the  request  of  various  members 
who  wish   to   prepare   themselves  for  committee  work 


Municipal  Reference  Libraries  175 

or  for  debates  upon  the  floor.  All  of  the  work  which  is 
done  in  the  department,  either  by  the  cataloguers  or 
by  the  reference  department,  is  reviewed  by  the  chief 
or  his  assistant  before  it  is  handed  to  the  one  who  made 
the  request.  This  is  to  produce  a  minimum  of  error  and 
a  maximum  of  uniformity. ^^' 

The  work  of  the  bill-drafting  department  during  a 
session  of  the  legislature  has  been  even  more  systemati- 
cally arranged,  as  is  shown  in  the  following  description 
prepared  by  the  library  itself  in  response  to  numerous 
inquiries.  The  opening  paragraph  relates  again  to  the 
strictly  referehce  library  work  involved. 


"An  Outline  of  the  System  used  in  the  Bill  Drafting 
Department  of  the  Legislative  Reference  Library 
of  Wisconsin  During  the  Session  of  1913. 

"Dr.  Charles  McCarthy  is  librarian  and  chief  of  the 
whole  department.  The  department  is  divided  during 
the  legislature  into  two  parts  —  one,  the  library  proper, 
and  the  other  the  bill  drafting  department.  The  library 
staff  consists  of  Mr.  McCarthy  as  librarian,  an  assistant 
librarian  and  three  (or  more)  library  assistants,  and  two 
or  more  young  men  who  are  engaged  in  research  work 
along  some  special  line.  In  addition  to  these  people 
engaged  solely  in  library  work,  there  are  clerks,  stenog- 
raphers, and  apprentices  on  the  staffs. 

"At  all  times  men  of  the  faculty  of  the  University  of 
Wisconsin  co-operate  with  us  and  come  and  offer  sug- 
gestions, criticisms,  or  give  any  help  which  it  is  within 
their  power  to  give,  when  they  are  requested  to  do  so. 

"'  Based  on  an  account  furnished  by  Miss  Clara  A.  Richards, 
assistant  to  the  chief. 


176  Law,  Legislative  Reference  and 

None  of  them,  however,  are  upon  the  pay-roll  of  the 
librar>-. 

"The  Bill  Drafting  Department  during  the  last  session 
consisted  of  Mr.  McCarthy  as  chief,  a  head  draftsman, 
and  three  assistant  draftsmen,  all  of  whom  were  expe- 
rienced lawyers;  a  chief  clerk  and  two  assistant  clerks, 
who  also  acted  as  proofreaders,  and  four  regular  stenog- 
raphers, and  during  the  rush  season  some  who  served 
temporarily,  and  an  errand  boy.  The  connection  be- 
tween the  two  departments  is  direct,  but  the  work  is 
conducted  in  separate  apartments.  The  library  section 
obtains  any  material  which  the  bill  drafters  may  want 
of  a  comparative  nature,  or  any  historical  and  biblio- 
graphical data.  In  fact  it  does  any  reference  work  which 
may  come  up  in  connection  with  the  bill  drafting. 
Similar  work  is  done  for  any  member  of  the  legislature, 
who  may  wish  to  know  the  history  of  any  legislation 
or  the  economic  movement  which  would  lead  to  the 
necessity  for  any  special  legislation. 

"The  relation  between  this  department  and  the  legis- 
lature is  wholly  voluntary',  and  no  legislator  comes  here 
for  assistance  except  at  his  own  desire.  When,  however, 
he  does  come,  he  is  required  to  present  a  signed  state- 
ment of  the  matter  which  he  wishes  to  be  incorporated 
in  the  bill  which  he  wishes  to  have  drafted.  When  he 
comes  to  the  bill  drafting  department  he  is  met  by  the 
chief  clerk,  who  takes  his  request,  sees  that  it  is  properly 
signed,  and  fills  out  a  blank  of  instructions.  For  the 
convenience  of  the  department,  there  are  two  blanks, 
one  printed  on  white  paper  and  the  other  on  green  paper. 
These   blanks   "*  are  almost  identical  except  in  color. 

•"  See  fig.  1. 


Municipal  Reference  Libraries  177 


Name       Brown 

,   Sen.  J. 

Number        60 

Date  Received 

Feb.    2 

Date  Wanted 

Feb.   11 

Instructions 

Copy 

Criticise 

Draft     v^ 

' 

Draftsman 

Riley 

Stenographer 

Proof  Reader 

Remarks 

Sunday  Work 

Fig.  1. 
(This  sheet  remains  in  file  and  shows  who  has  bill.) 


Number        60 

Date  Received 

Feb.   2 

Date  Wanted 

Feb.   11 

Instructions 

Copy 

Criticise 

Draft     y 

Draftsman 

Riley  (signed  by  Draftsman) 

Stenographer 

F.E.R.    (signed  by  stenog. ) 

Proof  Reader 

P.    M.    (signed  by  Proof  Readers) 

Remarks 

Fig.  2. 

(This  record  sheet  is  always  attached  to   Instruction    Blank   and 

remains  with  drafts  and  copies  of  bill.) 


178  Law,  Legislative  Reference  and 

For  convenience  sake  we  will  number  the  white  slip 
Fig.  1  and  the  green  slip  Fig.  2.  The  date  of  receipt  is 
stamped  upon  them  and  the  name  of  the  person  desiring 
to  have  the  bill  drafted  is  placed  upon  the  white  slip 
which  is  numbered  Fig.  1,  but  not  upon  the  green  slip, 
which  we  will  refer  to  as  Fig.  2.  On  both  of  them  the 
subject  of  the  bill  is  sketched  in,  the  time  wanted  is 
indicated,  and  whether  or  not  it  is  to  be  merely  copied, 
criticised,  or  drafted.  The  white  slip  is  now  placed  in 
a  vertical  folder  in  a  Globe  Wernicke  tiling  case.  The 
green  slip  is  handed  to  the  draftsman  to  whom  it  has 
been  assigned,  with  his  name  written  on  it,  and  when 
he  is  through  with  it  and  hands  it  to  the  stenographer, 
the  stenographer's  name  is  inserted,  and  when  she  is 
through  with  it,  the  proofreaders  sign  the  slip,  so  that  a 
complete  history  of  the  progress  of  the  bill  through  the 
department  may  be  found  on  slip  Fig.  2.  When  the  bill 
is  ready  for  delivery,  the  green  slip,  or  Fig.  2,  is  pinned  to 
the  original  instructions.  Fig.  3,  which  were  signed  by  the 
legislator,  and  placed  with  the  white  one,  which  bears 
his  name,  in  the  filing  case.  In  this  way,  the  legislator's 
name  is  kept  out  of  the  whole  transaction,  and  only  in 
case  a  draftsman  needs  to  consult  the  legislator,  does 
any  employee  other  than  the  clerk  know  whose  bill  is 
being  drafted. 

"The  utmost  secrecy  in  regard  to  these  bills  is  main- 
tained by  those  who  are  employed  in  the  department, 
for  the  relation  between  the  legislator  and  the  depart- 
ment is  regarded  as  strictly  confidential.  In  order  to 
maintain  this  relationship,  when  the  legislator  comes  in 
with  a  request  for  a  bill,  he  is  assigned  a  number  and  his 
name  is  written  upon  a  card,  Fig.  4,  bearing  this  number 


Municipal  Reference  Libraries  179 


INSTRUCTIONS 

Amend  4060  d  so  as  to  eliminate  coffees, 
teas  and  spices 


(Signed) '^..-..^^o*'^ 

(Signed  by  Legislator) 


Fig.  3. 


60        Brown,   Sen.   J, 


Sunday  Work 


O 


Fig.  4. 
(Check  card  when  bill  is  delivered.) 


180  Law,  Legislative  Reference  and 

on  tlie  upper  left  hand  corner.  These  names  are  filed 
alphabetical!)  .  The  pockets  in  the  Globe  Wernicke  file 
are  numbered  consecutively  and  the  bills  as  they  are 
drafted  are  numbered  to  correspond  with  the  number 
which  has  been  assigned  to  the  member  when  he  made 
a  request  for  that  bill,  and  placed  in  a  pocket  bearing  a 
corresponding  number.  Even  though  the  same  member 
should  appear  three  or  four  times  in  the  course  of  one 
morning  with  a  request  for  bills,  he  will  not  be  assigned 
the  same  number,  but  each  time  he  makes  a  request 
he  will  be  given  a  number  and  a  new  card  will  be  filed 
under  his  name  in  the  alphabetical  list,  and  upon  each 
card  there  will  be  a  catch-word  title  which  will  mean 
very  little  to  anyone  who  might  be  tampering  with 
the  file  wMth  a  desire  to  find  out  what  bills  this  man 
might  have  in  the  process  of  drafting.  It  will  be  seen 
that  the  only  connection  is  the  number  which  is  arbi- 
trarily assigned  to  him  when  he  comes  to  the  depart- 
ment, and  the  number  on  the  pocket  in  which  his  bill 
is  inserted.  For  the  convenience  of  the  clerks  the  file 
is  divided  into  different  sections;  one  for  "Bills  to  be 
Drafted,"  one  for  "Bills  in  the  Process  of  Being  Drafted," 
and  one  for  "Bills  to  be  Delivered."  As  the  bill  pro- 
gresses from  time  to  time  the  pocket  is  moved  from  one 
section  to  another.  An  official  copy  of  every  bill  which 
is  sent  out  is  kept,  together  with  the  instructions  and 
slips  upon  which  is  the  history  of  the  bill  in  the  depart- 
ment. There  are  certain  forms  which  are  given  to  the 
draftsmen  to  follow.     (See  figs.  5  and  6.) 


Municipal  Reference  Libraries  181 


A  BILL 

To  amend  section        4060  d 
of  the  statutes,   relating   to  works  of   necessity 
or  charity. 

The  people  of  the  state  of  Wisconsin,  represented 
in  senate  and  assembly,  do  enact  as  follows: 

SECTION  1.     Section        4060  d 

of  the  statutes .^.s amended  to  read:  Section 

4060  d  See  1911  Stat.  R. 

SECTION  2.     This  act,   etc. 

Fig.  5. 
(Filled  out  by  draftsman.) 


RULES  FOR  THE  DRAFTING  ROOM 


1.  No  bills  will  be  drafted  in  the  Reference  Room.  A 
separate  Drafting  Room  and  a  separate  force  have  been 
provided. 

2.  No  bill  will  be  drafted,  nor  amendments  prepared, 
without  specific  detailed  written  instructions  from  a  member 
of  the  Legislature.  Such  instructions  must  bear  the 
member's  signature. 

3.  The  draftsman  can  make  no  suggestions  as  to  the 
contents  of  the  bills.  Our  work  is  merely  clerical  and 
technical.     We  cannot  furnish  ideas. 

4.  We  are  not  responsible  for  the  legality  or  constitution- 
ality of  any  measures.  We  are  here  to  do  merely  as 
directed. 

5.  As  this  department  cannot  introduce  bills  or  modify 
them  after  introduction,  it  is  not  responsible  for  the  rules 
of  the  legislature  or  the  numbering  of  sections  either  at  the 
time  of  introduction  or  on  the  final  passage. 

Legislative  Reference  Department. 

Fig.  6. 


182  Law,  Legislative  Reference  and 

"The  member  receives  three  copies  of  his  bill  after  it 
is  drafted,  which  are  inserted  in  a  large  envelope.  Fig.  7, 
upon  the  outside  of  which  is  typewritten  the  title  of 
the  bill.  On  the  inside  of  the  flap  of  the  envelope  is 
the  number  of  the  pocket  in  the  file  from  which  the  bill 
was  taken.  This  is  merely  for  the  convenience  of  the 
people  in  this  department  in  case  any  confusion  should 
arise  in  the  future  in  regard  to  that  bill.  He  has  one  bill 
for  his  own  purposes  and  two  which  he  submits  at  the 
time  the  bill  is  introduced.  Care  is  taken  that  the  paper 
and  envelopes  should  correspond  with  those  in  use  in  the 
legislature.  Ever>'  effort  is  made  to  send  work  out  of 
the  department  in  as  perfect  condition  as  possible.  The 
stenographers  are  instructed  to  exercise  the  utmost 
care  in  their  work  and  every  bill,  no  matter  how 
short  it  may  be  or  how  long  it  may  be,  is  very  carefully 
proofread. 

"The  greatest  care,  naturally,  is  taken  to  keep  the  sec- 
tion numbers  straight  when  bills  are  being  drafted,  so 
that  two  bills  will  not  create  the  same  section  number. 
A  card  index  is  made  as  bills  are  drafted,  showing  the 
sections  created,  the  sections  repealed,  the  sections  re- 
numbered and  the  sections  amended.  On  each  card  there 
the  numbers  of  the  bills  which  affect  that  particular 
section  are  also  given.  This  is  kept  up  not  only  for  the 
bills  drafted  in  the  department,  but  also  for  all  bills 
introduced  in  the  legislature.  In  this  way  the  possi- 
bility of  sending  out  a  bill  with  an  incorrect  section 
number  is  reduced  to  the  minimum.  In  this  connec- 
tion, in  order  to  reduce  the  possibility  of  making  a  mis- 
take of  this  sort,  the  department  and  revision  clerks 
work  together  very  harmoniously  throughout  the 
session." 


Municipal  Reference  Libraries 


183 


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184  Law,  Legislative  Reference  and 

In  recent  years  this  work  has  received  in  Wisconsin 
an  appropriation  of  S20,000  annually  of  which  $9,000 
has  been  set  aside  for  use  during  a  session  of  the  legis- 
lature and  the  two  months  just  preceding  it.  That  such 
a  degree  of  success  is  possible  as  has  been  attained  in 
Wisconsin  on  only  820,000  a  year  Dr.  McCarthy  attri- 
butes in  no  small  part  to  the  co-operation  of  the  professors 
of  the  State  University,  to  the  availability  of  student 
workers,  and  to  the  proximity  of  the  law  library  and  the 
State  Historical  Society  library.  Located  elsewhere, 
or  run  on  a  commercial  basis,  he  has  stated  that  he  should 
want  S40,000  annually.  In  his  testimony  "*  before  the 
House  Committee  on  the  Library  at  Washington,  Dr. 
McCarthy  stated  that  from  the  beginning  the  legislature 
had  never  been  asked  for  money  to  run  this  bureau. 
However,  its  appropriation  grew  from  81,500  to  815,000 
in  less  than  ten  years  and  the  work  was  characterized 
by  Governor  McGovern  in  1911  as  "not  supported 
as  liberally  as  its  importance  demands."  His  recom- 
mendation for  87,000  additional,  or  822,000  in  all, 
resulted  in  an  increase  in  the  appropriation  to  $20,000. 
Salaries  are  not  high.  During  sessions  of  the  legisla- 
ture extra  bill-drafters  receive  from  $200  to  $300  a 
month  and  for  short  time  work  $100  a  week  has  been 
paid.''® 

Pennsylvania  is  another  state  in  which  bill-drafting 
is  undertaken  to  a  considerable  extent  by  the  legislative 
reference  bureau.  Without  going  into  the  details  of 
organization  as  fully  as  with  Indiana  and  Wisconsin 
it  is  of  special  interest  to  note  certain  provisions  in  the 

^^'>  Hearings  .  .   .  on  various  Bills  proposing  the  Establishment  of  a 
Congressional  Reference  Bureau,  Feb.  2t>-27,  1912,  p.  49. 
»•  Ibid.  p.  56. 


Municipal  Reference  Libraries  185 

Pennsylvania  law  which  are  unique.  It  is  provided  in 
this  case  that  the  director  shall  be  well  versed  in  legis- 
lative procedure  and  parliamentary  practice  and  shall 
be  ex-officio  adviser  to  the  General  Assembly.  This  has 
resulted  in  his  occupying  in  the  House  of  Representa- 
tives a  position  quite  similar  to  that  of  Clerk  at  the 
Speaker's  Table  in  Congress.  As  a  result  the  bill-drafting 
and  reference  work  of  the  bureau  during  sessions  of  the 
legislature  fall  primarily  to  the  assistant  director  and 
his  staff.  The  director,  who  is  appointed  for  four  years 
by  the  Governor,  is  also  designated  custodian  of  the 
law  library  and  of  the  legislative  documents  therein. 
With  the  approval  of  the  Governor  he  appoints  the  staff 
consisting  of  an  assistant  director,  a  research  clerk,  two 
stenographers,  a  cataloguer,  and  a  messenger.  In  addi- 
tion employees  of  the  State  Library  shall  be  assigned 
for  work  in  the  legislative  reference  bureau  at  his  re- 
quest. During  sessions,  and  for  one  month  prior  thereto 
and  immediately  following,  three  additional  search 
clerks,  five  stenographers,  and  a  record  clerk  may  be 
appointed. 

The  total  biennial  appropriation  is  $41,200.  Salaries 
of  the  permanent  staff  amount  to  $15,100,  annually, 
ranging  from  $900  to  $5,000  per  year. 

Where  bill-drafting  is  not  required  by  law  as  a  function 
of  the  legislative  reference  bureau,  reference  and  research 
work  on  subjects  which  are  before  the  legislature  con- 
stitute its  major  activity  in  most  cases,  though  in  New 
York  State  the  publication  of  the  Yearbook  of  Legis- 
lation is  the  most  important  undertaking.  Among 
bureaus  of  this  class,  when  available  funds  are  compared, 
the  Rhode  Island  State  Library  stands  in  the  first  rank 


186  Lciw,  Lgislative  Reference  and 

of  those  rendering  useful  ser\ice  to  members  of  the 
legislature  and  state  ofiFicials  generally.  The  organization 
of  this  type  of  bureau  is  the  usual  organization  of  a 
library  staff  in  which  general  administrative  work, 
technical  library  work  such  as  cataloguing  and  classi- 
fication, and  reference  or  research  work  are  done  by 
separate  individuals  where  the  size  of  the  force  permits 
such  a  division  of  labor  and  by  each  of  the  staff  to  some 
degree  where  numbers  and  means  are  limited. 

In  the  more  recently  established  bureaus  the  trend 
in  organization  seems  to  be  toward  an  emphasis  on  bill- 
drafting,  away  from  general  state  library  supervision, 
and  toward  academic  affiliations,  though  all  recent 
additions  to  the  ranks  do  not  give  evidence  of  these 
tendencies. 

The  later  proposals  for  a  congressional  bureau  at 
Washington  contain  fewer  detailed  provisions  regard- 
ing organization  than  those  first  made,  the  concensus  of 
opinion  being  that,  if  such  a  bureau  were  established  and 
placed  in  good  hands,  a  year's  experience  under  a  "lump 
sum"  appropriation  would  be  none  too  long  on  which  to 
subsequently  authorize  the  details  of  work  by  specific 
legislation,  if  indeed  specific  legislation  were  at  all  to 
be  considered  advisable. 

An  itemized  estimate  of  the  probable  organization 
and  expense  of  a  congressional  bureau  was  submitted 
by  Congressman  John  M.  Nelson  of  Wisconsin  during 
the  hearings  on  this  question  in  February,  1912.  As 
given  below  this  estimate  represents  the  result  of  going 
over  the  matter  most  carefully  with  the  Librarian  of 
Congress  and  others  who  would  probably  be  involved 
in  the  administration  of  the  bureau  when  put  into 
operation. 


Municipal  Reference  Libraries  187 


Estimate  of  Expense  of  a  Congressional  Legislative 
Reference  Bureau. i'" 

Chief  of  bureau $7,500 

Assistant  chief   4,000 

4  expert  draftsmen,  at  $5,000  each    20,000 

2  experts,  at  $2,500  each 5,000 

Chief  of  indexes  and  digests  and  editing 3,000 

1  assistant 2,000 

4  assistants,  at  $1,800 7,200 

2  assistants,  at  $1,500 3,000 

Chief  translator 2,500 

2  translators,  at  $1,800 3,600 

1  translator 1,500 

2  catalogues,  at  $1,500 3,000 

2  high-grade  stenographers,  at  $1,500  3,000 

4  stenographers,  at  $1,200 4,800 

4  stenographers  and  copyists,  at  $900 3,600 

6  clerks,  at  $900    5,400 

4  clerks,  at  $720    2,880 

2  messengers,  at  $840 1,680 

4  junior  messengers,  at  $480   1,920 

Special,  temporary,  and  miscellaneous  service 5,000 

Purchase  of  material 20,000 

Stationery  and  supplies    4,000 

Equipment 5,000 

Travel,  transportation,  postage,  telegrams,  and  incidentals  6,000 

$125,580 

(b)  Acquisition. 
1.  Sources  to  be  Watched  for  Notices  of  New  Material. 
A  complete  statement  of  sources  to  be  watched  for 
notices  of  new  material  of  value  to  the  legislative  refer- 
ence library  would  necessitate  a  renaming  of  practically 
all  the  various  titles  that  have  previously  been  mentioned 
in  the  discussion  of  materials  appropriate  to  such  a 
collection  as  is  under  consideration.  Particularly  does 
this  apply  to  the  sources  named  in  connection  with  the 

"'  From  p.  80  of  Hearings  before  the  Committee  on  the  Library, 
House,  .  .  .  on  various  Bills  proposing  the  Establishment  of  a  Con- 
gressional Reference  Bureau,  Feb.  26  and  27,  Wash.  1912.  114  p. 
The  total  of  these  figures  is  incorrectly  given  in  the  Hearings  as 
$126,500. 


188  Law,  Legislative  Reference  and 

discussion  of  document  indexes  and  lists  of  current  docu- 
ments, periodical  and  society  proceedings  or  organs,  to 
journals  of  the  book-trade,-  dealers'  announcements, 
bibliographies,  and  the  daily  press.  A  brief  list  of  the 
most  useful  guides  to  current  publications  would  include 
the  following,  all  of  which  have  received  earlier  mention 
in  other  connections. 

American  Political  Science  Review. 

Bulletin  of  the  Public  Affairs  Information  Service. 

Congressional  Record. 

Monthly  Catalogue  oi  the  Superintendent  of  Documents. 

National  Municipal  Review. 

Special  Libraries. 

State  Publications  of  the  Library  of  Congress. 

Survey. 

2.     Actual  Acquisition. 

Material  is  actually  acquired  by  gift,  exchange,  or 
purchase,  the  bulk  of  the  material  being  obtained  by  the 
first  method. 

(a)     Gift. 

Though  there  has  been  some  tightening  of  the  strings 
in  a  few  instances,  it  is  still  very  properly  possible  for 
a  library  to  secure  practically  any  federal  or  state  govern- 
ment document  without  charge,  particularly  if  the  request 
is  reasonable  and  the  reason  therefor  accompanies  the 
request.  Organizations,  especially  those  championing 
some  cause  or  advocating  some  reform,  are  usually 
generous  in  the  distribution  of  literature,  and  the  same 
may  be  said  for  individuals  who  have  published  desirable 
pamphlets  or  who  have  issued  reprints  of  special  articles. 

In  this  connection  it  may  not  be  out  of  place  to  note 
the  difference  in  effect  on  many  a  donor  between  a  form 
post-card    acknowledgment    of  a    gift    and    a    personal 


Municipal  Reference  Libraries  189 

though   brief  note  of  thanks.     The  form  card   has  its 
place;   let  it  keep  to  it. 

(b)  Exchange. 

Exchange  as  a  means  of  acquisition  is  of  course  depend- 
ent upon  the  quantity  of  exchangeable  commodities 
in  hand,  though  it  should  be  said  to  the  credit  (in  this 
case)  of  many  large  libraries  that  their  readiness  to  gamble 
in  futures  has  frequently  proved  a  boon  to  many  smaller 
institutions  which  are  forever  likely  to  find  a  large 
balance  on  the  debit  side  of  the  ledger. 

(c)  Purchase. 

Purchases  will  include  books,  periodicals,  certain 
society  transactions,  some  documents,  and  some  laws. 
The  methods  of  purchasing  to  the  best  advantage  and 
the  ways  and  means  of  trade  bibliography  and  library 
order  work  are  without  the  scope  of  the  present  treatise 
and  can  be  found  thoroughly  covered  elsewhere."^ 

(c)     Classification. 

The  practice  in  legislative  reference  libraries  is  to 
classify  material  closely,  to  be  as  specific  as  may  be  in 
assigning  classification  numbers,  thereby  bringing  to- 
gether material  on  separate  phases  or  aspects  of  several 
topics.  Take  the  case,  for  example,  of  public  utilities 
regulation.  A  general  library  not  specializing  in  this 
field  would  find  one  or  two  classification  numbers  suffi- 
cient. The  legislative  reference  library,  however,  may 
have  occasion  to  collect  separately  everything  available 
on  valuation,  on  legal  gas  rates  in  cities,  or  methods  of 
computing  electricity  charges,  on  depreciation,  and  so  on. 

"8  Cf.  Franklin  F.  Hopper,  "Order  and  Accession  Department" 
(preprint  of  Chap.  XVII  of  A.  L.  A.  Manual  of  Library  Economy) 
and  its  bibliography.     Chicago,  1911. 


190  Law,  Legislative  Reference  and 

While  there  is  general  agreement  on  this  principle  of 
classification  there  is  no  agreement  as  to  what  system 
permits  its  application  most  effectively  from  the  legis- 
lati\e  reference  library  point  of  view. 

The  Dewey  decimal  classification  has  been  adopted 
in  a  modified  or  rather  an  expanded  form  to  a  greater 
extent  than  any  other  system.  As  printed  even  in  the 
eighth  edition  of  1913  it  is  not  sufficiently  subdivided  for 
adoption  unaltered  on  such  subjects  as  are  handled  in 
this  work,  though  the  ninth  edition  may  be  expected  to 
improve  in  this  regard  even  more  than  did  the  eighth  over 
the  one  previous. 

It  should  be  said  that  this  latest  edition  (the  eighth) 
has  received  such  enlargement  in  the  sections  devoted 
to  internal  relations  of  the  state  with  groups  and  indi- 
viduals, suffrage,  legislation  and  law  making,  labor, 
wages,  and  the  condition  of  the  laboring  classes  generally 
that  it  is  much  more  serviceable  for  legislative  reference 
purposes  than  any  heretofore. 

Local  adaptations  of  the  decimal  classification  as 
worked  out  in  the  bureaus  in  Wisconsin  and  Indiana 
are  working  satisfactorily  in  their  respective  bureaus. 
The  Wisconsin  expansion  has  been  adopted  by  several 
other  similar  institutions  and  is  more  generally  known 
than  the  Indiana,  but  neither  has  been  printed,  a  fact 
which  will  delay  the  general  adoption  of  either  and  is 
much  to  be  regretted  by  those  interested.  To  print 
would,  however,  involve  hea\y  expense,  and  a  printed 
classification  could  not  so  easily  be  adopted  to  the  many 
new  aspects  and  subjects  of  present  day  legislation  as  a 
system  less  permanently  established. 

Attention  should  also  be  called  to  the  "Whitten" 
classification  used  in  the  New  York   State  Legislative 


Municipal  Reference  Libraries  191 

Reference  Bureau  and  in  the  Yearbook  of  Legislation 
issued  by  the  State  Library.  It  was  printed  as  No. 
22x  in  the  series  of  Legislation  Bulletins  in  1903  and, 
though  much  enlarged  since  that  date,  has  not  as  yet 
been  reprinted.  Each  issue,  however,  of  the  Index  of 
Legislation  is  so  thoroughly  indexed  that  recourse  to 
the  classification  scheme  is  unnecessary  unless  one  is 
•attempting  to  trace,  through  the  series  of  annual  indexes, 
the  legislation  on  a  subject  not  covered  by  the  volume 
in  hand.  This  system  has  been  adopted  in  certain  other 
bureaus,  for  example  in  Rhode  Island,  where  it  is  applied 
to  manuscript  material  on  subjects  of  legislation  and  to 
manuscript  compilations  of  laws.  The  only  disadvantage 
of  adopting  this  system,  if  an  up-to-date  revision  were 
available,  would  be  in  a  bureau  which  was  a  division  of 
a  state  library  having  its  other  collections  classified  by 
some  other  scheme. 

The  library  of  the  New  York  Public  Service  Com- 
mission, First  District,  where  Dr.  Whitten  is  now  in 
charge,  employs  for  its  purposes  a  classification  of  subjects 
under  broad  subject  headings,  alphabetically  arranged, 
with  subheads  arranged  on  a  similar  plan.  The  Bureau 
of  Railway  Economics  has  found  the  Library  of  Congress 
classification  suited  to  its  needs.  This  latter  has  the 
advantages  of  being  up-to-date,  in  print  (though  some 
of  it  is  printed  as  manuscript),  and  of  being  indexed. 
Its  detailed  plan  for  the  arrangement  of  official  docu- 
ments is  probably  the  best  available  for  a  large  document 
collection,  but  neither  this  nor  the  elaborate  arrangement 
of  United  States  documents  advocated  by  the  office  of 
the  Superintendent  of  Documents  ^^^  is  needed  in  a  legis- 
lative reference  library  which  classifies  closely  by  subject 

'"  Cf.  Checklist,  3d  ed.  1912. 


192  Law,  Legislative  Reference  and 

without  regard  to  form.  As  a  whole,  however,  the 
Library  of  Congress  classification  could  be  adopted  to 
ad\anlage  in  legislative  reference  work  and  unless 
previous  familiarity  of  the  classifiers  and  stafT  with  some 
other  scheme  or  the  previous  adoption  of  some  other 
system  in  the  general  library  are  arguments  outweighing 
other  considerations,  the  Library  of  Congress  system 
may  well  be  used.^^" 

(d)     Cat.JlLoguing. 

Cataloguing  for  legislative  reference  work  follows  the 
same  general  principles  which  cataloguing  for  other  uses 
entails.  Differences  are  largely  differences  of  emphasis. 
In  the  present  case  emphasis  will  be  on  subject  rather 
than  authorship,  on  careful  cross  referencing  from  one 
subject  to  another,  and  on  the  value  of  annotation  on 
the  catalogue  card,  particularly  in  regard  to  the  com- 
parative data  or  known  bias  of  a  given  publication. 

The  most  thorough  discussion  of  cataloguing  in  legis- 
lative reference  work  that  has  yet  appeared  w'as  presented 
by  Miss  Ono  Mary  Imhoff  before  the  Special  Libraries 
Association  at  the  Ottawa  Conference,  1912. ^^^  Miss 
Imhoff  would  make  simplicity  and  clearness  the  key- 
notes of  such  work.  She  would  abandon  as  superfluous 
the  accession,  gift,  and  withdrawal  books,  statistics 
of  books  catalogued,  and  all  accessory  records  which 
take  time  to  make,  but  do  not  aid  in  making  available 
sources  of  information.  Joint  author  cards,  series,  and 
title  cards  are  the  exception.     Continuation  cards  are 

*^  On  classification  and  cataloguing  in  special  libraries,  particu- 
larly legislative  reference  libraries  and  similar  bureaus,  see  Special 
Libraries,  v.  1:  18-20,  44-46,  5S-G0,  73-7.5  and  v.  li:  \-A,  140-54. 

'-'  Found  in  Spec.  Libs.  3:  149-.54,  Sept.,  1912;  in  A.  L.  A.  5m/- 
letin,  6:  23S-45.  July,  1912  and  reprinted  as  a  separate,  7  p.  by  the 
American  Library  Association. 


Municipal  Reference  Libraries  193 

useful  for  added  editions,  and  for  annual  publications 
cards  with  printed  columns  of  dates  are  helpful.  Con- 
tents, notes,  dates,  and  for  clippings  and  excerpts,  exact 
source,  are  specially  valuable.  A  note  should  state 
whether  bills  have  become  laws.  Make  many  analytics; 
use  popular  as  well  as  technical  words  in  subject  headings; 
be  generous  with  guide  cards.  Geographical  subheads 
are  most  useful.  Geographical  divisions  as  main  heads 
should  be  used  sparingly. 

Helps  to  cataloguers  in  assigning  subject  headings 
to  legal  works,  mentioned  earlier,  will  be  useful  to  the 
cataloguer  in  a  legislative  reference  library.  But  says 
Miss  Imhoff,  "the  economic  necessity  for  law  precedes 
the  legal  expression.  .  .  .  Since  a  legislative  reference 
library  is  busied  with  the  process  of  law  making,  rather 
than  with  the  interpretation  or  administration  of  law, 
the  trend  will  be  toward  the  economic  headings  rather 
than  the  legal."  Her  illustration  is  well  in  point. 
"Eminent  Domain"  is  a  legal  term  that  will  have  its 
place  in  the  main  body  of  the  catalogue.  It  will  find 
more  frequent  application,  however,  as  indicating  a  legal 
aspect  of  an  economic  problem  in  such  headings  as  "Rail- 
roads," "Street  Railways,"  "Telegraphs,"  and  "Tele- 
phones," with  each  of  which  it  may  appear  as  a  subhead. 

The  list  of  subject  headings  as  well  as  the  detailed 
classification  scheme  employed  in  the  Wisconsin  Legisla- 
tive Reference  Bureau  is  available  in  typewritten  form  and 
is  the  best  guide  for  this  semi-technical  side  of  the  work. 

To  catalogue  or  to  classify  with  intelligence  and  judg- 
ment requires,  however,  far  more  than  a  knowledge  of 
formal  ways  and  means,  and  a  study  of  advocated 
methods  must  be  followed  by  much  supervised  practice 
to  produce  satisfactory  results. 


194  Law,  Legislative  Reference  and 

Card  catalogue  records  in  legislative  reference  work 
should  cover  more  ground  than  the  actual  possessions 
of  the  small  working  library  maintained  in  most  bureaus. 
The  records  for  a  single  bureau  may  indeed  be  divided 
into  groups,  either  temporarily  or  permanently,  of 
separate  catalogues  for  materials  in  other  local  libraries, 
for  material  in  libraries  located  in  other  cities;  of  the 
special  knowledge  of  the  local  people  —  professors, 
officials,  and  various  experts.  Material  of  comparative 
value  may  receive  separate  treatment  and  a  card  index 
to  important  correspondence  may  be  of  great  use.  In 
some  cases  material  kept  in  vertical  files  and  closely 
classified  is  not  catalogued  at  all,  the  close  classification 
with  a  minute  subject  index  being  deemed  sufificient. 

Additional  records  of  like  nature  will  include  indexes 
to  bills,  which  should  indicate  the  final  disposition  of 
the  bill,  indexes  to  local  state  documents,  laws,  and 
legal  decisions;  cumulative  indexes  to  session  laws  on 
special  subjects,  to  governors'  messages,  especially  veto 
messages,  and  various  temporary  records  on  special 
subjects.  Ways  of  noting  the  exact  status  of  a  bill 
during  passage  are  considered  later. ^" 

(e)    Shelving  and  Filing  Methods. 

Books  shelve  with  little  difficulty.  Pamphlets  in 
stiff  binders  do  likewise.  Various  types  of  pamphlet 
boxes  are  made  to  accomodate  other  pamphlets,  mounted 
clippings  and  excerpts;  or,  such  material  may  be  filed 
vertically  in  drawers.  The  arrangement  of  material 
on  shelves  and  within  boxes,  or  drawers,  is  determined 
by  the  classification  system. 

>«  p.  216,  post. 


Municipal  Reference  Libraries  195 

Practice  differs  materially  on  these  points.  In  Rhode 
Island  compilations  of  laws  are  placed  in  Gaylord  binders 
and  filed  vertically  in  drawers.  The  Decimal  Classi- 
fication is  applied.  In  the  main  collection  boxes  are 
used  for  pamphlets.  A  file  of  tan  boxes  contains  yearly 
publications;  brown,  bulletins  and  series;  red,  miscel- 
laneous. Certain  pamphlets  are  filed  vertically  without 
binders  in  press  board  trays,  special  color  labels  being 
attached. 

At  Albany  the  vertical  filing  system  is  employed  on 
a  large  scale  though  some  pamphlet  boxes  are  used  on 
the  shelves.  Dr.  Whitten  in  the  Public  Service  Commis- 
sion Library  follows  a  similar  plan.  At  Indianapolis 
and  at  Madison  pamphlet  boxes  receive  the  bulk  of 
loose  material  though  in  both  vertical  files  are  used  for 
certain  classes,  such  as  bills,  manuscripts,  etc.  The 
pamphlet  box  used  by  Mr.  Lapp  is  designed  locally  and 
is  an  improvement  on  many  other  forms  now  in  use.  Its 
principal  advantages  are  strength,  a  hinged  front  held 
up  by  a  hinged  and  overlapping  cover,  and  a  ring  to  be 
used  in  pulling  the  box  forward  on  the  shelf  when  con- 
sulting its  contents. 

4.     Preparing  for  a  Legislative  Session. 

The  work  of  preparing  for  a  legislative  session  is 
mainly  of  two  kinds.  First,  every  effort  possible  is  made 
to  ascertain  what  subjects  are  likely  to  come  before 
the  legislature  for  consideration.  Second,  everything 
of  value  on  these  subjects  from  the  standpoint  of  pro- 
posed legislation  is  hunted  out,  secured,  and  made  as 
accessible  as  possible. 

There  are  several  avenues  of  approach  to  this  first 
matter.    The  best  is  the  legislator  himself  and  a  number 


196  Law,  Legislative  Reference  and 

of  legislative  reference  libraries  make  it  a  point  to  com- 
municate with  each  member  of  the  legislature  at  some 
time  before  the  opening  of  a  session  with  a  view  to  ascer- 
taining subjects  in  which  he  is  personally  interested  and 
which  he  is  planning  to  bring  up  for  action.  The  new 
Vermont  law  given  in  the  appendix  requires  the  revisers 
of  bills  to  gi\e  each  member  of  the  legislature  formal 
notice  that  they  are  in  session  and  ready  to  receive 
drafts  of  proposed  bills  for  revision.  In  Wisconsin  a 
circular  along  the  following  lines  is  sent  out  to  members 
of  the  legislature. 

Dear  Sir:  The  Wisconsin  Legislature  of  1901  author- 
ized the  Wisconsin  Free  Library  Commission  to  conduct 
a  Legislative  Reference  Department,  and  to  gather  and 
index  for  the  use  of  members  of  the  legislature  and  the 
executive  officers  of  the  state  such  books,  reports,  bills, 
documents  and  other  material  from  this  and  other  states 
as  would  aid  them  in  their  official  duties.   .   .  . 

Much  of  value  to  the  student  of  state  affairs  has  been 
collected.  We  desire  to  make  such  material  of  the 
utmost  use  and  wish  >'ou  to  call  upon  us  for  any  aid  we 
can  give  in  your  legislative  duties. 

If  you  will  inform  us  of  any  subjects  you  wish  to  in- 
vestigate, as  far  as  we  have  the  material,  time  and  means, 
we  will  tell  you: 

1.  What  states  have  passed  laws  on  any  particular 
subject. 

2.  Where  bills  for  similar  laws  are  under  discussion. 

3.  What  bills  on  any  subject  have  been  recently 
introduced  in  our  legislature. 

4.  Where  valuable  discussions  of  any  subject  may  be 
obtained. 

As  far  as  possible,  with  our  limited  force  and  means,  we 
will  send  you  abstracts  of  useful  material  and  answer  any 
questions  pertaining  to  legislative  matters. 

It  is  not  our  province  to  convince  members  of  the  legis- 
lature upon  disputed  points.     We  shall  simply  aid  them 


Municipal  Reference  Libraries  197 

to  get  material  to  study  subjects  in  which  they  are  in- 
terested as  public  officials. 

Make  your  questions  definite.  Our  work  is  entirely  free, 
non-partisan,  and  non-political,  and  entirely  confidential.' 

Next  to  the  legislator  himself  the  other  state  officers, 
departments,  and  institutions  will  be  the  best  sources 
of  information  for  they  will  be  demanding  reforms,  in- 
creased appropriations,  and  amendments  to  laws  which 
will  immediately  afifect  their  work. 

Other  sources  of  importance  that  will  aid  in  predicting 
subjects  of  legislation  to  be  proposed  are: 

1.  Laws  and  bills  of  recent  legislatures.  These  indi- 
cate to  some  extent  the  trend  of  legislation. 

2.  Laws  of  your  own  state  recently  declared  uncon- 
stitutional are  likely  to  be  reintroduced  in  amended 
form  avoiding  the  previous  unconstitutionality. 

3.  Governors'  messages  generally  review  the  progress 
in  state  government  in  recent  years  and  always  recom- 
mend definite  matters  for  legislative  action. 

4.  Campaign  speeches  frequently  promise  what 
reforms  the  candidates  will  favor  when  elected  to  office. 

5.  The  demands  or  platforms  of  political  parties 
contain  definite  statements  as  to  what  these  parties 
will  attempt  when  in  power. 

6.  The  demands  of  special  organizations  can  fre- 
quently be  learned  in  advance,  i.e.  of  organized  labor, 
civic  associations,  and  commercial  organizations.  They 
appear  in  the  daily  press,  local  organs,  or  will  be  stated 
on  request. 

7.  The  progressive  legislation  of  other  states  will 
be  a  further  clue  for  measures  likely  to  be  introduced 
locally.  The  "trend  of  legislation"  is  summarized  in 
such  publications  as  the  New  York  Annual  Review  of 


198  Law,  Legislative  Reference  and 

Legislation,  the  American  Political  Science  Ranew,  Poli- 
tical Science  Quarterly,  the  annual  "Review  of  Labor 
Legislation"  issued  by  the  American  Association  for 
Labor  Legislation,  and  the  bulletins  of  the  United 
States  Bureau  of  Labor  Statistics. 

With  these  sources  of  information  at  hand  the  next 
step  is  to  secure  and  make  accessible  comparative  and 
critical  data  consisting  of  existing  law  and  explanations, 
criticisms,  and  suggestions  as  to  its  operation  and  im- 
provement. The  subjects  to  receive  attention  first 
will  naturally  be  those  submitted  by  members  of  the 
state  legislature  and  by  state  boards  and  officers.  Dr. 
McCarthy  has  admonished  legislative  reference  library 
workers  at  this  point  as  follow^s:  '-^ 

"...  Work  for  all  you  are  worth  on  those  topics,  send 
out  thousands  of  circular  letters  to  experts  on  these  topics, 
subscribe  to  clipping  bureaus  if  necessary  to  secure 
critical  data  from  the  public  at  large.  Gather  statistics 
ahead.  Carefully  search  books  for  significant  and  con- 
cise statements;  if  to  the  point,  copy  or  cut  them  out 
and  index  them.  Go  through  the  court  reports  and  get 
the  best  opinions,  (c)  Get  hold  of  libraries  or  individuals 
or  professors  in  other  states  with  whom  you  can  corres- 
pond. Speed  in  getting  things  to  a  committee  or  an 
individual  is  absolutely  necessary.  Do  not  fail  to  use 
the  telegraph.  Get  material,  facts,  data,  etc.,  and  get 
it  quickly  and  get  it  to  the  point,  boil  down  and  digest. 
I  can  say  again,  the  legislator  does  not  know  much  about 
technical  terms;  avoid  them,  make  things  simple  and 
clear,  (d)  Employ  if  you  can  during  the  session  a  good 
statistician.    He  can  be  of  great  service  in  dealing  with 

'"  Wis.  Liby.  Commission.  Circular  of  Information,  no.  6,  p. 
7-8.     1908. 


Municipal  Reference  Libraries  199 

financial  bills,  in  estimating  accidents  from  machinery, 
or  in  gathering  statistical  data  of  any  kind.  He  should 
be  a  man  who  can  work  rapidly,  accurately  and  to  the 
point.  Throughout  all  of  this  work  it  is  absolutely 
necessary  to  get  all  material  absolutely  upon  the  points 
at  issue,  (e)  Make  arrangements  with  all  libraries  in 
your  city  and  libraries  elsewhere  for  the  loan  of  books 
or  other  material.  You  should  have  every  sort  of  an 
index  in  your  library  as  well  as  catalogues  of  any  of  the 
libraries  with  which  you  are  corresponding.  (/)  A 
correspondence  clerk  and  some  helper  to  paste  clippings, 
mount  letters,  etc.,  are  necessary,  especially  during  the 
legislative  session,  (g)  Keep  your  place  open  from  early 
in  the  morning  till  late  at  night.  Do  everything  in  your 
power  to  accommodate  those  for  whom  you  work." 
It  is  not  enough  to  merely  collect  material.  The 
interval  between  sessions  should  be  utilized  in  compiling, 
digesting,  and  briefing  data  on  public  questions  of  legis- 
lative interest.  If  the  results  of  such  work  can  be  pub- 
lished, so  much  the  better. 

(a)     Work  During  a  Session. 

1.     Reference  Work. 

During  a  session  of  the  legislature  all  legislative 
reference  libraries  are  occupied  in  doing  so-called  "refer- 
ence work"  or  research  work,  on  subjects  of  legislation. 

Some  do  this  with  a  view  to  placing  before  both  the 
legislator  and  their  bill-drafting  department  the  neces- 
sary data  on  whch  to  base  legislation ;  others  aim  merely 
to  provide  the  legislator  himself  with  facts,  laws,  and 
comment. 

There  are  other  calls,  however,  on  the  reference  de- 
partment than  those  first  thought  of  in  connection  with 


200  Law,  Legislative  Reference  and 

law-making.  Members  delivering  speeches  often  need 
ammunition  additional  to  the  formal  arguments  pro 
or  con.  For  example,  the  writer  recalls  some  research 
he  was  obliged  to  undertake  in  order  that  a  democratic 
member  might  be  able  to  combat  the  claim  that  civil 
serv'ice  laws  were  purely  a  Republican  party  measure. 
Fortunately  for  the  legislator  civil  service  laws  proved 
to  have  been  a  plank  in  both  platforms  for  sufficient 
time  to  satisfy  the  immediate  objection.  At  another 
time,  in  connection  with  this  same  law,  information 
was  sought  respecting  the  feasibility  of  the  "grand- 
father" clause  as  a  constitutional  obstruction  to  possible 
race  competition  for  state  offices  in  the  South. 

Authorities  supplied  to  legislators  examining  in- 
terested witnesses  at  committee  hearings  may  have  the 
effect  of  testing  the  witness  both  as  to  his  reliability 
and  his  knowledge.  Zartman's  Fire  Insurance  in  the 
hands  of  a  chairman  of  a  House  committee  investigating 
discrimination  in  fire  insurance  rates  has  proved  of 
immense  value  in  this  way. 

Legislators  are  popular  as  speakers  at  all  public  gather- 
ings and  the  legislative  reference  library  feels  the  effect 
in  no  small  number  of  instances. 

Suppose,  as  is  quite  likely  to  happen  in  this  day, 
the  legislative  reference  library  were  called  upon  by  a 
member  for  whatever  assistance  it  might  render  him 
in  preparing  a  minimum  wage  law.  Tiie  matter  would 
go  to  the  reference  department. 

In  the  collection  of  materials  on  this  subject  which 
the  reference  department  would  make  should  be  found 
the  existing  minimum  wage  laws  of  Massachusetts, 
Wisconsin,  Minnesota,  Colorado,  Michigan,  New  York, 
Ohio,  California,  Washington,  Oregon,   Nebraska,  and 


Municipal  Reference  Libraries  201 

Utah,  and  the  amendment  to  the  Ohio  constitution 
permitting  a  minimum  wage  law  in  that  state.  From 
these  alone  the  legislator  would  see  that  he  has  a  choice 
of  fixing  wages  by  statute,  as  in  Utah;  of  creating  an 
Industrial  Welfare  Commission  with  power  to  investi- 
gate the  conditions  of  women's  labor  in  any  occupation 
and  to  issue  mandatory  orders  relating  to  wages,  as  in 
California,  Oregon,  and  Washington;  of  establishing 
a  Minimum  Wage  Commission  which  may  appoint 
advisory  wage  boards  and  whose  orders  are  either  man- 
datory, as  in  Minnesota,  or  merely  advisory  —  at  least 
unenforceable  —  as  in  Massachusetts  and  Nebraska; 
or,  finally,  he  may  follow  Wisconsin  and  grant  to  an 
existing  agency,  in  this  case  the  State  Industrial  Com- 
mission, full  powers  to  investigate,  act,  and  enforce 
decrees. 

These  laws  ^^^  would  be  supplemented  by  printed  dis- 
cussions as  far  as  they  are  available  relating  to  the 
operation  and  results  of  these  laws,  by  correspondence 
with  those  whose  duty  it  is  to  apply  them,  and  the  opin- 
ions of  those  affected  by  their  application. 

124  California,  1913,  Chap.  324. 

Colorado,  1913,  Chap.  110. 

Massachusetts,  1912,  Chap.  706,  amended  1913;  Chap.  69,  673 
(see  also  Chap.  330). 

Michigan,  1913,  Chap.  290  (appointing  an  investigating  commis- 
sion). 

Minnesota,  1913,  Chap.  547. 

Nebraska,  1913,  Chap.  211. 

New  York,  1913,  Chap.  137,  467. 

Ohio,  1913,  p.  654  (appointing  an  investigating  commission). 

Oregon,  1913,  Chap.  82. 

Utah,  1913,  Chap.  63. 

Washington,  1913,  Chap.  174. 

Wisconsin,  1913,  Chap.  712. 

These  citations  are  taken  from  the  General  Information  Bulletin 
of  the  Progressive  National  Service  Legislative  Reference  Bureau. 
They  are  found  analyzed  in  the  Amer.  Labor  Legislation  Rev.  Oct. 
1913.     p.  434-47. 


202  Law,  Legislative  Reference  and 

Foreign  laws  needed  to  complete  such  a  collection 
are  the  British  Trade  Boards  Act  of  1909,  effective 
January-  1,  1910, ^-^  the  British  Coal  Mines  (minimum 
wage)  Act  of  March  29,  1912; ^^e  ^j^g  Victoria  (Australia) 
Factories  and  Shops  Act  of  October  6,  1905,  (Consolida- 
tion Act),  with  amendments  of  December  12,  1905, 
December  23, 1907,  March  2,  1909and  January  4, 1910;  127 
the  Queensland  Factories  and  Workshops  Act  of  De- 
cember 28,   1900,  and  the  Wages  Board  Act  of  April 

15,  1908;  the  South  Australia  Consolidation  Act  of 
December  21,  1907,  and  the  Factories  Act  of  December 
23,  1908;  the  Industrial  Disputes  Act  of  April  24,  1908 
for  New  South  Wales;  the  Industrial  Conciliation  and 
Arbitration  Acts  of  West  Australia  of  February  19, 
1902  and  December  21,  1909;  and  the  Commonwealth 
Conciliation  and  Arbitration  Acts  for  the  Common- 
wealth of  Australia  of  December  15,  1904,  December 
13,  1909,  and  the  10th  of  August  1910. 

Similar  laws  in  New  Zealand  were  codified  into  a 
Compilation  Act  (no.  82)  in  1908  under  the  title  "An 
Act  to  consolidate  certain  enactments  of  the  general 
assembly  relating  to  the  settlement  of  Industrial  Dis- 
putes by  Conciliation  and  Arbitration."  This  has 
since  been  twice  amended,  namely  by  acts  of  October 

16,  1908  and  December  3,  1910.     On  December  20th, 

1911,  German>-  passed  a  law  effective  April  1,  1912.     The 

German  text  is  available  in  the  Deiitscher  Reichsanzeiger 

for  December  30,  1911  and  has  been  discussed  at  length 

in  the  Bulletin  of  the  International  Labour  Office  v.  7, 

nos.  11—12,  p.  liii  sq.  and  published  in  English  in  the 

'=*  9  Edw.  7,  Chap.  22. 
'=«  2  Geo.  V,  Chap.  2. 

"'  CJ.  Barthelemv  Raynaud  Versle  Salaire  Minimum  (Paris,  1913), 
p.  463-478. 


Municipal  Reference  Libraries  203 

same  source  v.  7,  no.  1,  p.  7-13.  It  is  known  as  the 
Home  Work  Act. 

Lastly,  there  is  for  Roumania  the  "Act  Relating  to 
Agricultural  Contracts,"  dated  23rd  December,  1907  — 
5th  January,  1908,  which,  among  many  other  matters, 
creates  District  Commissions  to  determine  the  min- 
imum rate  of  wages  lawful  in  agricultural  contracts.^^* 

The  texts  of  these  foreign  laws,  if  not  available  in  the 
official  publications  of  their  governments,  will  be  found 
in  nearly  every  instance  in  the  Bulletin  of  the  Inter- 
national Labour  Office,  and,  in  French,  in  the  elaborate 
treatises  of  Raynaud  and  Boyaval.^^g  Many  of  them 
have,  of  course,  been  reprinted  elsewhere,  most  fre- 
quently by  the  Departments  of  Labor  of  various  govern- 
ments and  particularly  by  our  own.  Other  secondary 
sources  frequently  contain  them.  For  example  the 
British  Trade  Boards  Act  of  1909  appears  in  Hayes' 
British  Social  Politics,  and  in  Snowden's  A  Living  Wage. 

For  these  secondary  sources,  and  for  lists  of  official 
investigations  which  have  both  preceded  and  followed 
the  passage  of  these  laws  in  nearly  all  cases,  the  reference 
library    must    rely   upon    the  existing  bibliographies  i^** 

128  Sec.  65(a).    Bui.  of  Int.  L.  Off.  (Eng.  Ed.)  v.  5:  141-48;  1910. 

129  See  page  205,  206. 

130  Boyaval,  Paul. 

La  Lutte  contre  le  Sweating-System,  le  Minimum  legal  de 
Salaire;  I'Exemple  de  I'Australasie  et  de  I'Angleterre.  718  p. 
Paris,  Felix  Mean.     (1912?). 

Bibliography    occupies     p.  634-708     and     covers    books, 
articles,  official  documents,  investigations,  and  legislation  in 
all  important  countries. 
McDowell,  Mary. 

The  Minimum  Wage.  Bibliography  (in  Life  and  Labor  3: 
152-153,  May,  1913). 

Thirty-seven  references  largely  to  American  periodical 
literature;  includes  a  few  English  references  and  some  to  bills 
before  American  legislatures. 


204  Law,  Legislative  Reference  and 

of  the  minimum  wage  question,  supplemented  by  further 
investigation  through  channels  well  known  to  reference 
library  research  workers. 

Opposition  to  the  minimum  wage  may  be  expected 
by  anyone  proposing  such  a  measure  and  a  familiarity 
with  the  objections  that  have  already  been  made  to 
such  laws  will  make  its  proponents  foreanned  to  meet 
them  as  they  arise.  The  existing  bibliographies  have 
not  grouped  matter  on  the  negative  side  of  the  question. 
A  few  references  given  here  may  therefore  prove  con- 
venient to  anyone  whose  limited  time  precludes  indi- 
vidual investigation. 

IVIixiMUM  Wage  Bibliographies. 
Boyaval,  Paul. 

La  Lutte  contre  le  Sweating-system,  le  Minimum 
L6gal  de  Salaire;  I'Exemple  de  I'Australasie  et  de 
I'Angleterre.     718  p.     Paris,  F61ix  Alcan.     1912.  (?) 

Bibliography  covers  p.  637-708;  of  these  pages  650-54  are 
devoted    exclusively    to  the  minimum  wage  question  while  the 


National  Anti-Sweating  League  (London). 

A  short  Bibliography  of  Sweating  and  .  .  .  the  Legal  Mini- 
mum Wage.     Lond.  1906. 
New  York  (City)  Public  Library. 

The  .Minimum  Wage.  A  preliminary  List  of  Selected  Refer- 
ences.    9  p.     N.  Y.     1913. 

Prepared  primarily  a?  a  working  List  for  the  New  York  State 
Factory  Investigating  Commission  and  first  published  in  the 
libraries  Bulletin  for  August,  1913.  A  straight  author  list 
of  American  and  foreign  material  in  the  New  York  Public 
Library.  A  larger  classified  and  annotated  list  planned  for 
future  issue. 
Nichols,  Egbert  Ray. 

Intercollegiate   Debates,     v.  2.     833  p.     N.  Y.     c.   1912. 
Bibliography,  p.  545-46. 
Raynaud,  Barthelemy. 

Vers  le  Salaire  Minimum,  fitude  d'  ficonomie  et  de  Legis- 
lation Industrielles.     518  p.     Paris.     1913. 

Contains  no  separate  bibliography  but  the  extensive  foot- 
notes answer  the  same  purpose.  An  exceedingly  thorough  and 
up-to-date  treatise. 


Municipal  Reference  Libraries  205 

other  pages  relating  to  the  "Sweating-system"  contain  scattered 
references  to  it. 

McDowell,  Mary. 

The  Minimum  Wage  (a  Bibliography).  (In  Life 
and  Labor,  May,  1913,  p.  152-53:  vol.  3,  no.  5.) 

National  Anti-Sweating  League  (London). 

A  Short  Bibliography  of  "Sweating  and  a  List  of  the 
Principal  Works  upon,  and  references  to,  the  Legal 
Minimum  Wage."     24  p.     Lond.     1906. 

New  York  (City)  Public  Library. 

The  Minimum  Wage :  A  Preliminary  List  of  Selected 
References.     9  p.     N.  Y.     1913. 

Compiled  by  Dr.  C.  C.  Williamson  of  the  Division  of  Eco- 
nomics and  Sociology.  A  larger  list  is  announced  for  later 
publication. 

Nichols,  Egbert  Ray,  Ed. 

Intercollegiate  Debates  (Volume  II):  A  Year  Book 
of  College  Debating. .   833  p.     N.  Y.     1912. 
Minimum  Wage  Bibliography  p.  545-46. 

Negative  References. 
Boyaval,  Paul. 

La  Lutte  contre  le  "Sweating-system,"  le  Minimum 
L6gal  de  Salaire;    I'Exemple   de    I'Australasie  et  de 
I'Angleterre.     718  p.     Paris,  Felix  Alcan.     1912.  (?) 
"Difficultes  et  Objections,"  p.  218-41. 

Broadhead,  Henry. 

State  Regulation  of  Labour  and  Labour  Disputes  in 
New  Zealand,  a  Description  and  a  Criticism.  230  p. 
Christchurch,  N.  Z. 

p.  56-74  and  215-17,  especially.  Written  by  the  Secretary 
of  the  Canterbury  Employers'  Association  and  member  of  the 
Canterbury  Conciliation  Board. 

Brooks,  Sidney. 

The  Minimum  Wage  and  its  Consequences.  Liv.Age 
V.  273:  370-72  (Ser.  7,  v.  55).  1912.  Reprint  from 
the  Outlook  (London). 


200  Law,  Legislative  Reference  and 

Brown,  H.  LaRue. 

Massachusetts  and   the  Minimum  Wage.     {Annals 
of  the  Amer.  Acad.  48:  13-21,  July,  1913.) 
Especially  pages  16-19. 

Charity  Organization  Reinew  (London). 

V.  1  (N.S.):  5-6 

V.  4  "  :  10-19.  (Helen  Bosanquet's  review  of 
Webb's  Industrial  Democracy.) 

V.  15  (N.  S.):  227-230.  (A  review  of  "J.  M's."  pam- 
phlet on  "A  Scheme  for  a  National  Minimum  Wage 
and  the  Extermination  of  Poverty.") 

Laughlin,  J.  L. 

Monopoly  of  Labor.  {Atl.  Mo.  112:  444^53,  Oct. 
1913.) 

Lee,  Joseph. 

What  the  Minimum  Wage  means  to  Workers ;  a  Criti- 
cism.    {Sun>ey  31 :  156-157,  Nov.  8,  1913.) 

McSweeney,  Edward. 

The  Case  against  the  Minimum  Wage  .  .  .  before 
the  fifth  meeting  of  the  Executive  Council,  1911-1912, 
Massachusetts  State  Board  of  Trade,  Feb.  14,  1912. 
23  p.     Bost.  1912. 

Marks,  Marcus  M. 

The  High  Minimum  Wage;  the  Evils  of  Artificial 
Classifications  of  Labor.  Gassier' s  Mag.  25:227-230. 
1904. 

Nichols,  Egbert  Ray,  Exi. 

Intercollegiate  Debates  (Volume  H).  833  p.  N.  Y. 
Hinds,  Noble  &  Eldredge.     1912. 

The  minimum  wage.  p.  455-546;  negative  speeches  p.  509- 
545. 

Perils  of  the  Minimum  Wage.     Century.     84:  311-313. 
1912. 

Raynaud,  Barth61emy. 

Vers  le  Salaire  Minimum.  Paris,  Librairie  de  la 
Soci6t6  du  Recueil  Sirey.     518  p.     1913. 

"Les  Objections  actuelles  contre  le  Minimum  se  Salaire,"  p. 
352-366. 


Municipal  Reference  Libraries  207 

Snowden,  Philip. 

The  Living  Wage.     189  p.     Hodder  &  Stoughton, 
Lond.     1913  (?). 

Chap.  XIV.     "Some  Objections  and  Difficulties,"  p.  157-164. 

Women's  Industrial  Council. 

The  Case  for  and  Against  a  legal  Minimum  Wage 

for  Sweated  Workers.     London,  1909. 

The  relation  between  low  wages  and  commercialized  vice  is  dis- 
cussed in  the  several  investigations  of  women's  and  child  labor  and 
in  the  reports  of  most  vice  commissions.  Arguments  on  both  sides 
of  the  minimum  wage  controversy  may  be  obtained  from  such 
reports. 

In  the  British  Parliamentary  Debates  preceding  the  passage  of 
the  Trade  Boards  Act,  1909,  numerous  negative  speeches  can  be 
found.  Some  of  these  are  referred  to  and  others  reprinted  in  Carlton 
Hayes'  British  Social  Politics  (Ginn,  Boston,  1913),  chapter  \T 
"Sweated  Labor,"  p.  217-262;  the  British  Act  of  1909  occupies  p. 
247-262. 

Further  research  will  reveal  additional  matter  in 
the  official  journals  of  labor  organizations,  in  investiga- 
tions of  labor  conditions,  in  vice  commission  reports, 
in  the  publications  of  employers'  associations  such  as 
"The  Annual  Address"  ^^^  of  the  President  of  the  Canter- 
bury Employers  Association,  Christchurch,  New  Zea- 
land, the  National  Retail  Dry  Goods  Association^^'-  and 
the  Charity  Organization  Society  of  London,  England, 
the  Ohio  State  Grange  and  the  American  Federation  of 
Labor.  Correspondence  with  legislators  who  have  intro- 
duced measures  in  the  various  states  will  indicate  from 
which  direction  opposition  may  be  expected.  And  so 
the  research  might  go  on  almost  ad  infinitum. 

Just  here  enters  in  the  personal  equation  of  the  charac- 
ter, judgment,  and  intelligence  of  the  head  of  the  legis- 
lative   reference    bureau.     From    such    a    collection    of 

"1 1902. 

122  Cf.  also  Prof.  M.  B.  Hammond,  "Judicial  Interpretation  of  the 
Minimum  Wage  in  Australia,"  in  Amer.  Econ.  Rev.  3:  259-286, 
June,  1913. 


208  Law,  Legislative  Reference  and 

materials  as  has  been  outlined  he  must  select  the  best 
and  give  his  patron  the  benefit  of  whatever  abilities  he 
may  possess  as  a  result  of  special  training,  experience  and 
research.  Bibliographies  are  more  useful  to  librarians 
than  to  legislators  who  need  specific  data.  While  all 
the  data  should  be  at  the  disposal  of  the  legislator,  the 
librarian  should  first  go  over  it,  and  if  time  permits,  pre- 
sent him  with  a  summary  of  legislation,  digests  of  opinion 
on  the  merits  of  the  question,  and  the  results  of  investi- 
gations elsewhere,  with  pertinent  comments  on  the  opera- 
tion of  the  laws  already  in  force. 

The  legislator  should  then  present  a  rough  draft  of 
his  bill  to  the  bill-drafting  branch  of  the  library  which 
will,  with  the  co-operation  of  the  legislator,  the  reference 
division,  and  the  drafters,  finally  evolve  a  measure  that 
will  ser\e  fairly  satisfactorily  as  a  basis  for  criticism. 
This  bill  may  then  be  sent  to  interested  parties,  lawyers, 
judges,  labor  organizations,  and  professors  of  economics, 
political  science,  and  law  for  criticism  and  comment. 
With  these  comments  in  hand  it  will  again  be  considered 
by  the  legislator  and  the  bill-drafters  and  eventually  a 
model  bill  may  be  expected. 

2.     Bill-drafting  and  Legislative  Procedure. 

Bill-drafting  is  a  science;  successful  bill-drafting  an 
art.  Its  technique  involves  skill  in  the  use  of  words 
and  phrases  and  in  their  proper  juxtaposition.  It 
involves  a  knowledge  of  constitutional  and  statutory 
provisions  relating  to  form.  It  involves,  further,  and 
in  the  same  person,  a  thorough  understanding  of  the 
conditions  making  necessary  proposed  legislation  and 
an  ability  to  fit  means  to  ends. 


Municipal  Reference  Libraries  209 

Mr.  Thomas  I.  Parkinson  of  the  Legislative  Drafting 
Bureau  at  Columbia  University  read  before  the  Academy 
of  Political  Science  in  1912  a  paper  on  "Legislative 
Drafting"  which  points  out  most  clearly  the  difficulties 
in  this  field  and  emphasizes  the  important  part  the 
drafter  himself  must  play  in  determining  not  only  lan- 
guage and  form  but  actual  policy,  a  matter  which  many 
have  thought  of  as  strictly  within  the  province  of  the 
legislator  himself  and  himself  only.  After  enumerating 
by  way  of  illustration  a  few  of  the  innumerable  matters 
of  detail  that  must  be  considered  in  drawing  up  a  satis- 
factory workmen's  compensation  law  —  Shall  it  apply 
in  all  employments  or  in  specified  employments?  To 
all  injuries  or  specified  injuries?  How  shall  compensa- 
tion be  computed,  and  on  what  basis  and  under  what 
conditions?  What  procedure  shall  determine  contro- 
verted questions  and  what  administrative  organization 
shall  be  responsible  for  the  proper  enforcement  of  the  law, 
etc.,  etc.  —  Mr.  Parkinson  makes  his  point  thus: 

"The  foregoing  are  frequently  described  as  matters 
of  policy  with  which  the  drafters  should  have  nothing 
to  do:  they  are  solely  for  the  legislator.  Theoretically, 
this  is  true.  If  all  these  questions  were  carefully  weighed 
and  decided  by  the  legislator  there  would  be  nothing 
left  for  the  drafter  but  to  put  the  legislative  decision 
into  language.  Practically,  however,  the  great  majority 
of  these  questions  of  policy  do  not  occur  to  the  legis- 
lator until  the  drafter  in  the  detailed  statement  of  the 
legislative  intent  uncovers  the  numerous  instances  to 
which  the  legislative  intent  has  not  been  applied." 

As  has  been  intimated  earlier,  a  detailed  study  of  the 
technique  of  bill-drafting  is  beyond  the  set  limits  of  this 
text,  the  main  purpose  of  which  is  to  emphasize  the 


210  Law,  Legislative  Reference  and 

"library  side"  of  the  topics  treated.  Moreover  such  a 
subject  demands,  and  has  received  elsewhere,  separate 
treatment  as  a  special  field  of  endeavor  and  should  not 
occupy  a  subordinate  place  in  a  general  discussion  of 
libran.-  ways  and  means,  though  a  good  special  library 
is  indispensible  to  success  in  this  field.  A  list  of  author- 
ities on  bill-drafting  and  statutory  construction  is  given 
in  an  appendix,  and  the  reader  is  referred  to  them  for 
elaborations  of  the  subject.  The  bare  enumeration 
of  some  of  the  difficulties  involved  will  complete  present 
consideration  of  it. 

Some  of  the  difficulties  involved  in  bill-drafting  and 
some  of  the  difficulties  resulting  from  poor  bill-drafting 
are  suggested  in  the  following  brief  statements.  Statutes 
are  too  frequently  practically  unenforceable  because  of 
the  use  of  general  terms  where  executive  officers  need 
specific  rules.  The  converse  is  also  true  in  some  cases. 
Ambiguous  terms  and  words  variously  defined  lack 
precise,  legal  definition.  Mere  copying  of  legislation 
elsewhere,  without  knowledge  of  its  success  or  failure 
in  operation,  often  leads  to  serious  results,  and  ignorance 
of  existing  laws  to  absurd  inconsistencies. 

Failure  to  become  familiar  with  constitutional  and 
statutory'  limitations  that  have  been  placed  on  legis- 
lation, to  recognize  clearly  the  distinction  between  the 
subject  of  a  bill  and  its  purpose,  and  to  apply  to  the 
synthetic  process  of  bill-drafting  the  results  of  previous 
analytic  work  in  statutory-  construction,  all  tend  toward 
poor  and  inefficient  law-making. 

In  actual  drafting  a  preliminary  rough  outline  showing 
the  purport,  relative  importance,  position,  and  logical 
sequence  of  bill  sections  is  indispensable.  Short  sen- 
tences and  brief  sections  make  for  clearness.     A  title 


Municipal  Reference  Libraries  211 

to  state  clearly  the  purpose  of  the  bill  should  be  written 
after  the  bill  itself  is  completed. 

Definitions  of  terms  may  well  occupy  the  first,  rather 
than  the  last,  section  of  a  law,  and  too  great  care  in  the 
matter  of  diction  cannot  be  exercised.  Other  verbal 
matters  of  importance  are  questions  of  tense,  the  use 
of  the  affirmative  or  negative  form,  provisos  (for  which 
a  separate  section  is  advised),  preambles  (generally 
advised  against)  and  repeal  clauses.  Special  considera- 
tion and  care  are  required  in  the  case  of  criminal  and 
penal  statutes,  amendments,  and  general  revenue 
measures. 

A  wise  and  timely  note  of  warning  has  been  sounded 
in  regard  to  the  drafting  of  new  legislation  in  the  field 
of  Private  Law  by  one  ardently  in  sympathy  with  every 
good  effort  for  social  progress,  service,  and  betterment, 
by  means  of  Public  Law.  It  comes  from  the  pen  of 
John  W.  Patton,  now  Professor  Emeritus  at  the  Univer- 
sity of  Pennsylvania  Law  School  and  is  given  under 
the  admonitory  caption  "Festina  Lente."  ^^^  Professor 
Patton  concludes  his  admonition  thus:  "Legislative 
action,  however,  should  be  based  upon  demonstrated 
need,  careful  study  of  the  proposed  remedy  in  substance, 
of  its  constitutionality,  of  the  meaning  of  every  word 
used  in  a  proposed  act;  with  a  careful  examination  of 
existing  decisions  as  well  as  statutes.  Knowledge  of 
law  as  well  as  of  the  English  language  is  required,  and 
the  pen  of  one  who  thinks  he  has  a  facility  for  legislative 
expression  should  indeed  'make  haste  slowly.'  This 
caution  should  also  be  observed  in  accordance  with 
the  statement  in  Broom's  Legal   Maxims  No.  150,    So 

"'  In  Penn.  Law  Rev.  59:  203-214,  Jan.,  1911. 


212  Law,  Legislative  Reference  and 

likewise  with  respect  to  matters  which  do  not  affect 
existing  rights  or  properties  to  any  great  degree,  but 
tend  principally  to  influence  the  future  transactions  of 
mankind,  it  is  generally  more  important  that  the  rule 
of  law  should  be  settled  than  that  it  should  be  theoreti- 
cally correct.'  " 

Professor  Patton  has  added  in  a  letter  to  the  writer: 
"It  is  sad  to  have  humane  and  beneficial  aims  fail  because 
of  imperfect  drafting." 

Even  these  few  hints  of  a  general  nature,  brief  and 
incomplete  as  they  are,  will  serve  to  indicate  at  least  a 
portion  of  the  difficulties  in  bill-drafting  and  a  few  of  the 
reasons  why  caution,  skill,  and  trained  practical  intelli- 
gence are  needed  in  formulating  measures  destined  to 
become  a  part  of  the  law  of  the  land.^^ 

The  various  steps  in  the  progress  of  a  bill  through  the 
legislature  "^  should  be  intimately  known  to  all  members 
of  a  legislative  reference  department  for  at  least  two 
reasons.     They  may  be  called  upon  at  any  moment  for 

'^  This  discussion  of  bill-drafting  is  based  freely  on  Mr.  Thomas 
I.  Parkinson's  paper  on  "Bill-drafting"  alluded  to,  found  in  the 
Publications  of  the  Academy  of  Political  Science,  v.  3,  No.  2, 
p.  142-54  and  Mr.  James  McKirdy's  paper  on  the  same  subject 
read  at  the  annual  meeting  of  the  National  Association  of 
State  Libraries,  Ottawa,  1912.  Both  are  available  as  separates 
and  the  latter  is  accompanied  by  a  bibliography.  These  are  two 
of  the  best  short  general  articles  available;  Mr.  Lapp's  and  Mr. 
Bruncken's  "Hints"  (see  p.  397— iOl  apx.)  relate  strictly  to  Indiana 
and  California. 

'^  C/.  Paul  S.  Reinsch,  American  Legislatures  and  Legislative 
Methods  (N.  Y.  Century,  19K)7),  especially  Chap.  VI,  "Procedure  in 
State  Legislatures";  also  Chester  Lloyd  Jones,  Statute  Law  Making 
in  the  United  States  (Boston,  Boston  Bk.  Co.,  1912),  "Legislative 
Procedure,"  p.  15-20;  Ernest  L.  Bogart,  "Financial  Procedure  in 
Legislatures"  in  Reinsch,  Readings  on  American  State  Government 
(Boston,  Ginn  &  Co.,  1911),  p.  56-Gl;  and  John  H.  Finley  and 
John  F.  Sanderson,  The  American  Executive  and  Executive  Methods 
(.\.  Y.  Century,  1908),  Chaps.  V,  "The  Executive  and  the  Legis- 
lature" and  VI,  "The  Veto  and  Approval  of  Bills." 


Municipal  Reference  Libraries  213 

information  regarding  the  exact  status  of  a  bill;  they 
may  also  be  called  upon  to  amend  or  redraft  a  bill,  or 
section,  at  any  stage  during  passage  and  must  conse- 
quently know  not  only  the  status  of  the  bill  on  which 
they  are  to  work,  but  the  rules  of  procedure  and  parlia- 
mentary practice  applicable  to  the  bill  at  that  stage 
in  order  that  all  work  done  shall  be  consistent  there- 
with. 

Legislative  procedure  differs  markedly  among  the 
several  states,  and  to  a  degree  not  anticipated  by  the 
average  citizen.  That  improvement  is  quite  possible  in 
not  a  few  cases  is  well  proved  by  Professor  Jones'  com- 
ments referred  to  in  the  note.  That  this  is  appreciated 
in  some  states  is  evidenced  by  the  fact  that  in  Nebraska 
at  present  a  comprehensive  investigation  is  under  way 
concerning  comparative  parliamentary  law  and  legis- 
lative procedure  in  this  country  with  a  view  to  apply- 
ing its  results  to  an  improvement  in  the  Nebraska 
situation. 

There  is  a  certain  amount  of  routine  in  the  passage 
of  a  bill  through  any  Jegislature  which  has  much  in 
common  with  the  routine  in  all,  and,  very  briefly  the 
history  of  a  bill  is  about  as  follows:  ^''^ 

At  a  time  set  for  such  matters  a  member  of  the  legis- 
lature, on  obtaining  the  floor,  asks  leave  to  introduce 
a  bill.  On  receiving  permission  from  the  presiding 
officer  so  to  do,  the  bill  is  sent  by  a  page  to  the  clerk 
who  reads  the  bill  by  title  only,  after  which  a  "first 
reading  of  the  bill"  is  announced  by  the  presiding 
officer.     In  some  states  i"  the  bill  is  at  once  referred  to 

"•*  It  should  be  kept  clearly  in  mind  there  are  numerous  excep- 
tions to  the  procedure  here  outlined. 

"'  i.e.,  Texas. 


214  Law,  Legislative  Reference  and 

a  standing  committee  for  consideration  and  recommen- 
dation. If  reported  upon  unfavorably  by  the  committee, 
that  usually  ends  the  matter.  If  reported  upon  favorably 
it  is  next  printed,  unless  ordered  otherwise  by  the 
legislature,  and  at  a  later  date  is  "brought  up  on  second 
reading"  i.e.,  is  read  aloud  in  full  by  the  clerk,  and  after 
debate  and  possible  amendment  is  voted  upon  by  the 
assembly  acting  as  a  committee  of  the  whole.  The  vote 
is  on  the  question  of  the  adoption  of  the  report  of  the 
committee  which  has  considered  the  bill,  and  results, 
if  favorable,  in  the  bill  being  passed  to  engrossment  and 
third  reading.  In  this  instance,  to  engross  means  to 
copy  in  full  as  passed  on  second  reading  with  all  amend- 
ments in  their  proper  place.  Some  states  require  engross- 
ing   to    be    done    on    the    typewriter,   others   in    long 

hand. 

On  third  reading,  when  most  states  require  the  bill 
to  be  read  aloud  again  in  full,  no  amendments  can  be 
offered  without  unanimous  consent  of  the  members  pres- 
ent. A  final  vote  is  then  taken  on  the  bill  and  if  passed 
it  is  sent  to  the  other  branch  of  the  legislature  where  a 
similar  procedure  occurs. 

After  passage  in  both  houses  it  is  returned  to  the  house 
of  origin  to  be  enrolled  —  written,  typewritten,  or  printed, 
as  the  law  may  require,  in  full  as  passed,  —  receives  the 
signature  of  the  Speaker  of  the  House,  the  President 
of  the  Senate,  and  goes  to  the  Governor  for  his  approval 
and  signature,  or  his  veto  by  a  veto  message  returning 
the  bill  to  the  house  of  origin. 

Bills  often  provoke  much  debate  and  are  frequently 
amended  many  times.  When  the  two  houses  cannot 
agree  on  important  bills,  conference  committees  are 
appointed  representing  each  house. 


Municipal  Reference  Libraries  215 

Agreement  is  usually  effected  by  compromises  and  the 
report  of  the  conference  committee  is  generally  accepted 
and  adopted  by  both  houses. 

The  Governor  is  usually  allowed  a  fixed  number  of 
days  after  the  close  of  a  legislative  session  in  which  to 
sign  all  bills;  at  the  expiration  of  this  time  bills  unsigned 
become  law  automatically  in  some  states  and  in  others 
have  the  same  status  as  bills  vetoed. 

Many  of  the  states,  perhaps  most,  follow  a  slightly 
different  procedure  at  the  start  and  authorize,  or  at 
least  permit,  a  second  reading  of  the  bill  by  title  only 
immediately  after  the  first  reading,  and  follow  this 
second  reading  by  reference  to  committee. 

As  has  been  intimated  earlier  it  is  difficult  to  give  in 
a  brief  statement  even  such  details  of  this  process  of 
law  making  as  are  generally  applicable  and  the  devia- 
tions possible  and  frequently  resorted  to,  though  a 
definite  routing  is  prescribed,  make  such  a  narrative 
seem  almost  fruitless. 

The  problem  of  keeping  close  track  of  the  progress 
of  a  bill  through  the  legislature  is  solved  in  some  states 
by  having  published  either  officially  or  through  private 
enterprise  a  weekly  bulletin  presenting  in  cumulated 
form  the  action  taken  on  all  bills.  A  daily  record  is 
of  course  kept  by  the  journal  clerk  in  his  books  and  can 
be  consulted  if  occasion  demands,  though  it  is  not  an 
easily  accessible  record  and  could  not  be  generally  re- 
sorted to.  Advance  sheets  of  the  journals  published 
daily  contain  the  information  needed  but  of  course  not 
in  cumulated  form,  and  they  remain  unindexed. 

To  provide  for  themselves  a  daily  cumulative  record 
is  a  problem  which  some  legislative  reference  bureaus 
have  attempted  by  using  what  is  termed  a  "bill-travel 


216  Law,  Legislative  Reference  and 

card,"  somewhat  similar  to  the  filled-in  sample  given 
below.''* 


1. 
(In  the  House) 
H.B.  No.  24.        Subject:  Minimum  Wage 
Introduced  by:         Jones,  A. B. 
1st  Rdg:  1/7,13         Comm.  Ref:  Labor 
Comm.  Rpt.         (un) favorable,  (not)   amended  1/12,  13. 
2d  Rdg:  1/14-13     Rpt.  (not)  adopted:  l/14-13ord.  (not)  print: 

(not)  amended:     Rptd.     Engrossed:     1/16-13. 
3d  Rdg:     1/25-13      Passed  1/25-13      Signed  2/16-13. 
Printed  in  full  as  passed:     1/26-13. 
Sent  to  Gov.  2/18-13  Effective:   July  I,  1913. 

App.     2/25-13. 
Vetoed : 


2. 
(In  the  Senate.) 
H.B.     No.  24.  Subject:  Minimum  Wage 

Red.  from  H:     1/27-13  1st  Rdg:  1/27-13 

Comm.  Ref:  Labor. 

Comm.  Rpt:  (un)favorable, /  (not)  amended:  1/31,13 

2d  Rdg:  2/7-15  Rpt.   (not)  adopted:/  Reprinted:/ 

/  (not)  amended 
3d  Rdg:     2/14-13         Passed:    2/14-13        Signed:    2/16-13 


On  these  two  cards  can  be  indicated  the  "travel"  of 
a  bill  in  both  houses.     In  front  of  the  "No."  at  the  top 

'«  Matter  in  italics  is  that  supplied  from  day  to  day  in  long  hand ; 
other  matter  is  printed. 


Municipal  Reference  Libraries  217 

of  each  card  would  be  placed  an  "H.  B."  or  an  "S.  B." 
and  following  the  "No."  the  number  of  the  House 
Bill  or  Senate  Bill,  whichever  is  being  followed.  In 
the  space  following  each  printed  item  is  placed  the  date 
of  the  action  taken;  paging  of  the  journal  cannot  usually 
be  given  as  the  paging  of  the  advance  sheets  and  of  the 
final  form  will  differ.  Action  taken  is  indicated  by 
checking  or  underlining  the  appropriate  words.  The 
sample  offered  would  need  some  modification  wherever 
used,  but  indicates  a  possible  form  of  record.  These 
cards  would  be  filed  numerically  in  two  series,  House 
Bills  and  Senate  Bills.  A  subject  index  referring  to 
bills  by  number  and  a  personal  index  for  each  member 
showing  what  bills  he  has  introduced  should  supplement 
this  numerical  file. 

5.  Qualifications  of  a  Legislative  Reference  Libra- 
rian and  Present  Opportunities  for  Train- 
ing. 139 

The  educational  qualifications  desirable  in  the  head 
of  a  legislative  reference  bureau  have  most  appropri- 
ately been  stated  as  a  background  of  history,  political 
science,  political  economy,  and  sociology  with  the  addi- 
tion of  some  constitutional  law,  legislative  procedure,  and 

1^^  See  M.  S.  Dudgeon,  "The  Scope  and  Purpose  of  Special  Libraries" 
in  Spec.  Libs.  3:  129-133;  also  his  "The  QuaHfications  of  Legislative 
and  Municipal  Reference  Librarians,"  in  Spec.  Libs.  2:  114-115, 
June,  1911;  testimony  of  Dr.  McCarthy,  Speaker  Clark,  Mr.  Bea- 
man,  and  Mr.  McKirdy  before  the  House  Committee  of  the  Library 
(62  Cong.  3d  Sess.  S.  R.  1271,  especially  pages  104,  107,  114,  115,  122, 
123,  128);  J.  David  Thompson's  Report  (see  note  p.  170),  p.  36-38; 
James  McKirdy,  Bill-Drafting  (21  p.  Harrisburg,  1912)  discusses  the 
ideal  draftsman;  cf.  also  Spec.  Libs.  2:  32,  86;  The  Wisconsin 
Free  Library  Commission  Instruction  in  Library  Administration  and 
Public  Service  (12  p.  Madison,  1912),  and  the  "Wisconsin  Library 
Commission  Training  Class,"  in  Liby.  Jr.  38:  640-41,  Nov.    1913. 


218  Law,  Legislative  Reference  and 

both  the  theory  and  practice  of  municipal  and  state 
government.  That-  training  and  experience  in  library 
methods  are  regarded  not  only  as  desirable  but  as  essen- 
tial qualifications  for  this  office  is  made  clear  in  all 
discussions  of  the  subject  in  print,  and  is  particularly 
shown  by  the  emphasis  put  on  library  science  in  the 
few  places  where  formal  instruction  in  legislative  refer- 
ence work  is  given.  To  those  who  have  engaged  in 
this  work  no  arguments  on  this  point  are  required,  and 
it  is  interesting  to  note  that  when  such  instruction  was 
proposed  in  one  library  school,  the  legislative  reference 
librarian,  who  was  to  conduct  much  of  the  work,  insisted 
on  even  more  so-called  library  technique  being  included 
than  the  school  authorities  had  thought  necessary. 
The  formal  training  of  this  legislative  reference  librarian 
had  included  graduate  work  and  teaching  in  political 
science  but  no  library  science. 

The  director  of  another  legislative  reference  bureau 
has  said  that  if  he  were  suddenly  confronted  with  the 
problem  of  selecting  a  competent  staff  de  fiovo  he  would 
be  at  a  loss  where  to  turn. 

This  statement,  it  seems,  would  indicate  not  only 
that  it  is  time  that  some  formal  instruction  were  given 
aiming  to  prepare  for  service  in  legislative  reference 
bureaus,  but,  in  view  of  the  great  number  of  graduate 
students  in  political  science  available  year  after  year,  it 
would  seem  that  there  is  certainly  something  lacking  in 
the  equipment  of  such  students  that  is  demanded  in 
the  qualifications  of  a  member  of  the  staff  of  a  legislative 
reference  library.  At  the  same  time  it  need  hardly  be 
said  that  the  legislative  reference  library  worker  who 
has  not  had  the  benefit  of  graduate  study  under  expert 
guidance,  or  who  is  not  of  his  own  initiativ^e  a  careful 


Municipal  Reference  Libraries  219 

student  of  political  affairs,  lacks  much  that  is  vital  to 
success  and  efficiency  in  this  form  of  public  service. 

There  has  been  some  discussion  as  to  whether  the 
proper  process  of  making  a  special  librarian  is  to  take 
a  person  already  trained  as  a  librarian  and  give  him 
additional  knowledge  of  the  subject,  or  to  take  a  person 
with  special  knowledge  of  a  subject  and  give  him  training 
in  library  ways  and  means.  Each  view  has  its  supporters, 
and,  as  good  old  Sir  Roger  de  Coverly  would  say, 
"much  might  be  said  on  both  sides."  Mr.  Dudgeon, 
Secretary  of  the  Wisconsin  Library  Commission  and 
formerly  chief  draftsman  of  the  Wisconsin  legislative 
reference  department,  has  expressed  the  opinion  that 
it  is  easier  to  teach  library  technique  to  the  specialist 
than  to  give  the  required  special  knowledge  to  a  librarian 
without  any  taste  for  it.  On  the  other  hand,  the  trained 
librarian,  or  a  university  graduate  with  the  taste  and 
aptitude  for  a  specialty  though  without  preliminary 
advanced  study  in  it  deserves  serious  consideration  as 
a  candidate. 

A  discussion  of  this  question  in  its  details  is  relatively 
unimportant,  however.  It  is  agreed  on  all  sides  that 
special  familiarity  with  the  subject  and  that  a  knowl- 
edge of  library  ways  and  means  are  both  essential 
factors  in  the  qualifications  of  the  special  librarian. 
Which  comes  first  is  not  important  so  that  both  are 
present;  the  more  of  each,  the  greater  the  sum  total  of 
effectiveness. 

In  view  of  the  testimony  of  the  greatest  of  statesmen 
on  the  difficulties  inherent  in  the  drafting  of  bills  des- 
tined to  become  law,  it  need  hardly  be  said  that  the 
qualifications  of  the  successful  drafter  of  bills  must 
be  such  as  to  command  a  most  profound  respect.     A 


220  Law,  Legislative  Reference  and 

thorough  knowledge  of  law  in  the  broadest  sense,  of 
statutor>-  construction  and  interpretation,  and  of  existing 
legislation  and  of  legislative  procedure,  must  be  but  the 
starting  point  of  years  of  experience  to  produce  an  ideal 
in  this  field  of  endeavor.  It  is  generally  conceded  that 
the  talents  of  him  who  could  occupy  appropriately  the 
office  of  chief  of  a  government  bureau  of  this  type 
W'Ould  be  be>'ond  those  that  any  government  salary 
could  secure.  Indeed  both  Speaker  Clark  and  Congress- 
man Mann  seemed  to  agree  that  no  one  could  be  found 
in  the  L'nited  States  who  would  be  qualified  from  the 
start  or  without  considerable  experience,  to  direct  a 
congressional  bureau  if  one  were  established,  though 
the  Speaker  courteously  added  that  if  he  could  think 
of  taking  Mr.  Mann  out  of  the  House  the  one  qualified 
candidate  would  be  found. 

Though  the  ideal  draftsman  is  placed  on  so  high  a 
pedestal  it  can  be  said  that  there  are  in  this  country 
many  men  who  have  made  a  conspicuous  success  in 
this  work,  and  that  they  can  be  found  in  nearly  every 
state  on  the  judges'  bench,  in  legislative  halls,  in  univer- 
sity faculties,  or  in  drafting  bureaus.  And  from  those 
best  qualified  for  the  work  can  be  had  added  testimony  as 
to  its  many  difficulties. 

L'ntil  recently  no  library  school  has  off^ered  courses 
aiming  primarily  to  prepare  its  graduates  for  work  in 
special  libraries  except  in  the  case  of  library  work  with 
children.  Legislative  reference  work  has  been  presented 
to  library  school  students  in  one  or  two  lectures  just  as 
have  other  special  fields  of  special  endeavor,  such  as 
medical  library  work  and  work  in  technical  libraries,  law 
and  municipal  reference  libraries. 

Since  the  fall  of  1912  the  New  York  State  Library 


Muniqipal  Reference  Libraries  221 

School  has  offered  a  detailed  course  in  "Law  library  and 
legislative  reference  work,"  under  the  direction  of  Mr. 
Frederick  D.  Colson,  law  librarian,  and  Mr.  Clarence 
B.  Lester  (then)  in  charge  of  the  legislative  reference 
section  of  the  New  York  State  Library.  As  described 
in  the  Circular  of  Information  for  1912-1913,  the  course 
consisted  of  "Lectures,  discussions,  and  problems  of  law 
libraries  and  legislative  and  municipal  reference  depart- 
ments and  practice  in  the  actual  work  of  the  New  York 
State  Law  Library  and  the  legislative  reference  section 
of  the  State  Library.  Additional  practice  will  be  provided 
for  those  who  desire  it." 

In  the  spring  of  1912  and  again  in  1913  and  1914  there 
was  given  to  the  seniors  of  the  University  of  Illinois 
Library  School  a  short  course  of  lectures  which  have 
since  been  revised  and  expanded  into  the  present  volume. 
There  has  been  some  discussion  of  extending  the  work 
over  at  least  a  semester  and  making  it  an  elective.  So 
far  the  briefer  course  has  been  required  of  those  seniors 
taking  what  is  locally  known  as  the  Library  Seminar. 
Still  another  proposal  is  to  have  given  a  few  very  general 
lectures  required  of  all  seniors,  and,  in  addition,  an 
optional  second  semester  course  open  to  those  seniors 
who  have  had  as  a  prerequisite  the  course  in  United 
States  and  foreign  government  publications. 

The  most  promising  opportunity,  however,  for  training 
for  legislative  reference  work  was  recently  made  available 
when  the  Library  School  of  the  University  of  Wisconsin 
offered  in  the  fall  of  1913  a  new  course  in  "library  admin- 
istration and  public  service. ' '  The  course  was  established 
to  meet  a  definite  demand,  a  "demand  for  library  workers 
in  a  field  where  knowledge  of  subject  is  of  greater  im- 
portance than  a  preliminary masteryof  Hbrary  technique." 


222  Law,  Legislative  Reference  and 

It  is  planned  with  a  view  to  the  needs  of  those  who  intend 
to  work  in  legislative  and  municipal  reference  libraries, 
law  and  medical  libraries,  bureaus  of  investigation,  tax 
associations,  industrial  commissions,  boards  of  public 
utilities,  commercial  houses,  manufacturing  plants,  etc. 
In  the  printed  general  notice  of  the  course  it  is  said  that 
it  will  be  open  only  to  "college  graduates  who  by  reason 
of  personal  qualities  and  the  nature  of  their  under- 
graduate work  are  well  equipped  to  do  the  class  work 
required  by  the  epitomized  courses  offered  and  who  bid 
fair  to  excel  in  this  field  of  librarianship.  The  course 
in  library  methods  is  offered  only  in  connection  with 
studies  to  be  pursued  in  the  university  and  cannot  be 
taken  separately.  These  university  studies  will  give 
opportunity  for  the  student  to  round  out  and  develop 
his  knowledge  of  the  subject  in  which  he  is  specializing." 

Approximately  one  third  of  the  academic  year  will 
be  devoted  to  each  of  the  three  divisions  of  the  course, 
namely,  to  bibliographic  and  technical  library  studies, 
to  elective  work  at  the  University,  and  to  lectures 
planned  for  this  course  only,  covering  the  administration 
and  problems  of  special  libraries. 

From  a  larger  number  of  applicants  at  the  opening  of  this 
course  seven  were  selected,  and  in  each  case,  in  this  first 
instance,  the  special  training  and  practice  desired  will  be 
afforded  in  the  legislative  reference  department.  As  was 
anticipated,  enough  requests  for  special  investigations 
to  be  made  were  at  once  forthcoming  from  the  state 
departments  and  commissions  to  enable  each  student  to 
be  assigned  to  a  major  task  of  practical  importance. 
The  topics  under  investigation  already  include  certain 
co-operative  industries  in  Wisconsin,  co-operative  credit, 
the  central  board  of  control  for  all  state  institutions, 


Municipal  Reference  Liljrarics  223 

and  analysis  of  laws  regulating  trusts,  monopolies,  and 
mortgage  taxation. 

Wisconsin  with  its  excellent  university  and  well 
equipped  legislative  reference  department  is  singularly 
well  prepared  to  offer  such  instruction.  The  year  in 
progress  should  make  a  fair  test  of  the  possibilities  in  the 
situation  so  that  judgment  must  be  withheld  until  such 
time  has  elapsed.  Everything  points  towards  success 
in  the  undertaking,  however,  and  the  only  question  that 
can  be  raised  at  this  point  is  whether  or  not  a  little  longer 
time  might  not  profitably  be  given  students  in  which  to 
make  the  best  of  the  valuable  opportunities  afforded 
them. 

Formal  instruction  in  bill-drafting  can  best  be  obtained 
at  present  by  experience  and  training  under  the  guidance 
of  those  who  have  had  actual  experience  and  are  now 
doing  such  work  in  legislative  reference  bureaus  like 
those  of  Pennsylvania,  Wisconsin,  Nebraska,  Indiana, 
and  others,  and  in  the  "politics  laboratory"  at  Columbia 
University.  In  the  Political  Science  Departments  and 
Law  Schools  of  many  universities  are  men  well  qualified 
to  ofTer  instruction  in  this  field,  and  the  suggestion  is 
made  in  view  of  the  increasing  number  of  college  and  law 
school  graduates  who  are  entering  the  state  legislatures 
that  there  is  open  to  these  universities  a  field  of  endeavor 
into  which  they  might  profitably  follow  Wisconsin  and 
one  or  two  others ^'''^  by  affording  such  instruction. 

Preparation  for  legislative  reference  work  wherever 
given,  it  need  hardly  be  said,  should  include  definite 
instruction  in  the  use  of  law  books,  a  knowledge  of  what 
is  to  be  expected  in  legal  text  books  and  court  reports, 

"°  One  of  the  best  courses  on  legislative  methods  etc.,  now  offered 
is  that  given  by  Professor  Freund  at  the  University  of  Chicago  Law 
School. 


224  Law,  Legislative  Reference  and 

and  knowledge  of  how  to  get  from  these  books  and  from 
session  laws  and  statutes  just  what  is  there  to  be  had. 
It  seems  perhaps  like  emphasizing  the  obvious  to  call 
special  attention  to  this  matter,  but  as  the  writer  has 
been  asked  by  a  coUegeprofessor,  "Whataresessionlaws?", 
has  had  to  find  the  very  page  wanted  in  the  statutes  for 
members  of  the  legislature  though  the  index  was  there, 
and  has  been  told  by  a  librarian  that  he  knew  nothing 
of  the  nature  of  volumes  of  court  reports  until  as  a 
librarian  in  a  university  he  first  came  in  contact  with 
them,  —  for  these  reasons  and  others,  it  seems  that  some 
formal  elementary  instruction  in  the  use  of  law  books 
should  be  provided  for  all  anticipating  work  in  a  legislative 
reference  library  where  preliminary  education  and  ex- 
perience has  not  made  them  familiar  with  such  publica- 
tions. 

6.     Present  Success  and  Support. 

Testimony  as  to  the  success  of  legislative  reference 
and  drafting  bureaus  is  available  on  every  hand.  It 
appears  in  the  Hearings  given  on  this  subject  by  the 
House  Committee  on  the  Library  to  which  frequent 
reference  has  already  been  made,  in  the  Report  of  the 
American  Bar  Association's  Special  Committee  on  Legis- 
lative Drafting,  and  in  the  recent  writings  of  professors 
of  political  science. 1^'  Governors'  messages  in  increasing 
number  advocate  and  urge  the  creation  of  such  agencies. 
The  President  of  the  United  States  as  Governor  of  New 
Jersey  favored  a  national  bureau.  Ambassador  Bryce 
established  a  precedent  when,  as  a  student  of  American 
political  institutions  and  an  experienced  statesman  of 
the  British  Lmpire,  he  appeared  before  a  congressional 

'*'  See  bibliography,  p.  388-96  apx. 


Municipal  Reference  Libraries  225 

committee  and  advocated  that  such  a  bureau  be  made 
a  part  of  our  national  legislative  machinery.  Com- 
mittees of  both  Houses  of  Congress  have  reported 
favorably  on  measures  that  would  establish  a  bureau 
for  their  use  in  Washington.  And,  everywhere,  legis- 
lators who  have  availed  themselves  of  the  facilities  of 
legislative  reference  bureaus  stand  ready  to  attest  their 
usefulness. 

If  we  exclude  from  the  comparison  the  legislative 
reference  section  of  the  New  York  State  Library,  whose 
influence  has  been  felt  not  only  in  all  American  states 
but  also  abroad  through  the  generous  distribution  of 
its  unique  Yearbook  of  Legislation,  it  can  be  said  that 
more  success  has  attended  those  bureaus  which  render 
aid  in  drafting  legislation  in  addition  to  furnishing  the 
facts  on  which  legislation  should  be  based  than  those 
which  remain  merely  centers  of  information  and  ex- 
perience on  legislative  topics.  This  is  only  natural, 
but  it  does  not  signify  that  bureaus  unprepared  to  render 
such  additional  service  should  attempt  it  in  order  to 
secure  more  support. 

It  may  be  noted  that  a  committee  of  the  American 
Political  Science  Association  has  recently  reported  in 
favor  of  uniting  the  function  of  bill-drafting  with  that 
of  reference  work,  a  question  on  which  there  has  been 
some  difference  of  opinion  expressed. 

Just  what  sums  of  money  have  been  used  for  legislative 
reference  work  in  each  of  the  various  states  is  difificult 
to  determine  for  in  a  number  of  instances  support  is 
received  only  from  general  state  library  funds,  members 
of  the  regular  staff  assisting  in  the  work.  Also  purchases 
are  frequently  made  from  general  book  funds,  though 
primarily    for   use   in    this   special   work.      Even   when 


226  Law,  Legislative  Reference  and 

separate  legislative  appropriations  are  made  for  sub- 
divisions of  state  libraries  doing  this  work  they  do  not 
necessarily  represent  the  only  sums  spent  for  they  may 
be  increased  by  using  general  unassigned  funds  for 
special  help  or  equipment. 

There  are,  however,  enough  bureaus  financially  in- 
dependent whose  appropriations  are  definitely  fixed 
to  give  a  good  idea  of  the  support  accorded  and  needed 
for  their  successful  operation. 

In  the  following  table  is  shown  the  support  now  given 
to  a  number  of  these  bureaus. 

Legislative  Reference  Bureau  Appropriations. 

Annually.  Biennially. 

Illinois  $25,000  (1913-1915) 

Indiana $16,000  (1913)"2 27,000  (1913-1915) 

Nebraska 16,400  (1913-1915) 

Ohio    15,650  (1913) 

Pennsylvania.^" 18,100  (1913) 41,200  (1913-1915) 

Rhode  Island    4,000  (1913) 

Vermont  1" 5,000  (1913) 

Wisconsin 21,800  (1913) 

The  above  figures  represent  total  appropriations  in- 
cluding both  salaries  and  maintenance.  Individual 
annual  salaries  range  downward  from  five  thousand 
dollars  though  the  amount  recommended  for  the  chief 
of  the  proposed  Congressional  Bureau  is  seven  thousand 
five  hundred  dollars.  The  chairman  of  the  President's 
Commission  on  Economy  and  Efficiency  in  speaking  in 
favor  of  such  a  Congressional  Bureau,  and  a  large  number 

"2  The  regular  annual  appropriation  is  $13,500,  but  $2,500  addi- 
tional was  made  available  for  April  1,  1913. 

>"  For  salaries  of  the  permanent  staff  $1."),100  is  annually  available; 
individual  salaries  range  from  S90()  to  SoOOO. 

»♦«  Revisers  of  bills  receive  $7.50  per  day  and  expenses  for  neces- 
sary clerical,  etc. 


Municipal  Reference  Libraries  227 

of  other  speakers  heard  on  the  subject,  advocated  ten 
thousand  dollars  as  the  minimum  that  might  be  expected 
to  attract  the  type  of  man  needed  to  administer  this  office. 
Even  at  ten  thousand  dollars,  the  salary  would  be  two 
thousand  five  hundred  dollars  less  than  that  paid  to 
the  parliamentary  counsel  for  the  treasury  in  England, 
the  officer  of  the  British  government  whose  functions  most 
nearly  resemble  those  that  would  attach  to  the  proposed 
federal  office  under  discussion. 

That  legislative  reference  work  must  be  done  on  a 
strictly  non-partisan,  impartial,  and  scientific  basis  is 
emphasized  by  all  who  have  voiced  their  opinions  in 
the  matter  and  that  the  work  is  so  regarded  by  those 
for  whom  it  is  done  and  can  be  so  maintained  by  those 
undertaking  it  has  had  practical  demonstration.  The 
Wisconsin  department  on  one  occasion  cheerfully  drafted 
a  bill  which,  if  passed,  would  have  abolished  it  entirely. 
The  assistant  director  of  the  Pennsylvania  bureau  has 
testified  to  the  non-interference  in  their  work  of  a  strong 
political  organization  in  the  legislature  and  to  an  attitude 
on  the  part  of  the  legislature  of  general  confidence  in 
their  work.  It  was  also  under  definite  assurance  ot 
the  non-partisan  and  non-political  character  of  the 
proposed  bureau  for  Congress  that  a  diplomatic  repre- 
sentative from  a  foreign  power  was  prevailed  upon  to 
contribute  to  the  discussions  of  the  subject  before  a 
congressional  committee.  It  is  a  tribute  to  its  non- 
partisan character,  to  the  impartiality  and  fairness  of 
these  bureaus  now  established,  as  well  as  to  the  quality 
of  service  rendered,  that  the  legislatures  that  have  been 
served  by  them  have  in  so  few  years  not  only  doubled 
and  trebled  the  funds  provided  for  their  use,  but  that 


228  Law,  Legislative  Reference  and 

appropriations  have  increased  in  some  instances  more 
than  a  dozen-fold. 

7.     Future    Development    and    Present    Tenden- 
cies. 

In  addition  to  a  rapid  increase  in  the  number  of  states 
pro\iding  legislative  reference  facilities  the  near  future 
may  be  expected  to  develop  closer  co-operation  between 
departments  already  and  to  be  established,  and  to  witness 
not  only  an  extension  of  work  along  lines  already  laid 
down,  but  also  the  acquisition  of  numerous  allied 
functions  now  performed,  if  at  all,  by  scattered,  non- 
co-operating  state  offices. 

A  long  stride  in  the  right  direction  from  the  stand- 
point of  closer  co-operation  was  taken  when  the  Bulletin 
of  the  Public  Affairs  Information  Service  first  made  its 
appearance  in  September,  1913.  This  "Service"  is 
maintained  by  contributions  of  both  money  and  in- 
formation from  some  two-score  institutions,  mainly 
legislative  and  municipal  reference  libraries,  and  a 
number  of  the  larger  state,  public,  and  university  li- 
braries, taking  an  active  interest  in  public  affairs  move- 
ments generally.  Plach  subscriber  to  the  service  sends 
to  the  Director  of  the  Indiana  Bureau  of  Legislative 
and  Administrative  Information  news  of  the  appearance 
in  print  of  important  federal,  state,  and  city  documents, 
reports  of  investigations  both  public  and  private  into 
public  business,  reports  of  organizations,  compilations  of 
laws,  and  of  all  publications  of  general  interest  issued  by 
the  co-operating  subscribers  themselves  or  which  come  to 
their  notice  through  any  channels  whatsoever.  The  ser- 
vice is  particularly  valuable  in  bringing  to  light  impor- 
tant   articles    bearing   on    legislation    which    appear    in 


Municipal  Reference  Libraries  229 

publications  not  covered  by  any  of  the  general  indexes  to 
periodical  literature. 

The  unique  phase  of  the  service  is,  however,  its  addi- 
tional information  in  regard  to  MS.  material,  such  as 
bibliographies,  compilations  of  laws,  etc.,  available  in 
the  libraries  of  the  co-operating  institutions ;  announce- 
ments of  official  and  unofficial  investigations  under 
way  or  authorized  into  the  political,  social,  or  economic 
conditions  or  the  administration  of  state  or  city  affairs. 

It  is  true  that  much  of  the  printed  matter  noted  in 
this  Bulletin,  particularly  official  documents,  will  be- 
come generally  known  sooner  or  later  through  other 
channels.  This  service  however  presents  the  information 
with  greater  promptness  and  offers  a  select  list  of  purely 
public  affairs  references.  The  information  relating  to 
MS.  bibliographies,  compilations  of  laws,  and  of  investi- 
gations under  way,  is  not  generally  available  elsewhere. 
It  is  not  proposed  to  make  it  known  through  the  columns 
of  Special  Libraries  of  which  Mr.  Lapp  is  also  managing 
editor,  nor  is  it  of  such  a  nature  that  it  may  reasonably 
be  expected  in  the  valuable  document  lists  furnished 
by  the  American  Political  Science  Review  and  the 
National  Municipal  Review.  This  service  is  an  important 
step  in  the  final  solution  of  the  problem  of  a  more  intimate 
co-operation  between  legislative  reference  libraries,  and, 
by  conferences  with  all  interested  parties,  with  organi- 
zations interested  in  public  affairs,  such  as  the  American 
Political  Science  Association  and  state  associations,  may 
afford  a  solution  of  all  the  difficulties  that  have  here- 
tofore presented  themselves  in  this  sphere. 

Work  yet  waiting  to  be  done  in  most  states  that  would 
in  reality  only  continue  work  already  begun  along  simi- 
lar lines  would  include  an  improvem.ent  in  the  facilities 


230  Law,  Legislative  Reference  and 

for  exchanging  bills  among  legislative  reference  libraries 
during  legislati\e  sessions.  With  this  should  come  a 
public,  perhaps  official  agency  for  furnishing  to  all  who 
desire  it  information  as  to  the  exact  status  of  pending 
legislation  in  any  state.  The  Bulletin  of  the  Public 
Affairs  Information  Service  may  assume  this  additional 
function  which  at  present  is  attempted  by  private 
agencies  only. "" 

Each  bureau  may  be  expected  in  time  to  complete 
an  index  to  all  bills  that  have  been  introduced  into  the 
local  legislature  and  should,  of  course,  see  to  it  that  a 
complete  file  of  bills  is  bound  up  after  each  session.  A 
bibliography  of  and  complete  index  to  all  state  documents 
might  well  be  prepared  in  the  legislative  reference 
bureau  and  a  compilation  of  governors'  messages  made 
with  a  thorough  index,  including  a  separate  index  to 
veto  messages.  There  is,  of  course,  some  question  as 
to  whether  the  state  library  or  the  legislative  reference 
librar>^  is  the  proper  agency  for  preparing  these  \-arious 
compilations  and  indexes  in  the  field  of  state  documents. 
The  important  thing  is  that  it  should  all  be  done  and  if 
the  state  library  is  better  prepared  to  do  it  the  legislative 
reference  library  should  be  the  last  to  object. 

In  new  lines  of  work  which  the  legislative  reference 
department  could  well  afford  to  undertake  it  has  been 
suggested  that  the  publishing,  editing,  and  indexing  of 
the  session  laws  and  statutes  be  included,  that  the  statutes 
be  revised  under  the  direction  of  this  department,  and 
that  its  head  be  one  of  the  commissioners  on  uniform 
state  laws.     The   Nebraska  precedent   of   naming   the 

'**  Two  such  agencies  are  the  Legislative  Information  Service, 
815  Hartford  Building,  Chicago,  Illinois  (James  A.  Sanford,  Man- 
ager) and  the  Law  Reporting  Company  of  New  York  City. 


Municipal  Reference  Libraries  231 

legislative  reference  bureau  as  the  headquarters  of  im- 
portant legislative  investigating  commissions  is  worthy 
of  serious  consideration  and  wide  adoption. 

Editorial  work  on  the  journals  of  the  legislature,  on 
numerous  state  documents,  particularly  the  legislative 
manual,  would  not  be  inappropriate  work  for  such  an 
agency  and  has  been  shared  in  to  some  extent  in  one 
or  two  instances  already.  Some  of  the  functions  which 
the  original  draft  of  the  present  Illinois  Legislative 
Reference  Bureau  Law  sought  to  assign  to  the  new 
bureau,  but  which  were  eliminated  by  amendments,  have 
been  made  virtually  a  part  of  the  bureau's  work.  ^^^ 

Any  attempt  to  generalize  on  principles  and  tenden- 
cies of  the  past  twenty  years  developed  by  libraries  in 
creating  a  reference  service  on  subjects  of  legislation  and 
a  drafting  service  for  legislative  proposals  is  difificult; 
apparent  unanimity  is  seen  only  in  the  fact  of  establish  • 
ment  and  in  certain  phases  of  internal  policy,  and  not  in 
the  method  of  creating  and  establishing  these  agencies 
and  in  their  resultant  status  as  dependent  or  independent 
organizations.^*^ 

That   the   legislative   reference   movement   is  rapidly 

gaining   ground    should    not    need    further   elaboration. 

Though  tendencies  are  not  yet  crystalized,  and  are  hard 

to  discern,  there  are  indications  that  future  development 

is  to  some  extent  already  foreshadowed.     A  drafting 

w 

146  Q-  Thompson's  Report,  supra  p.  38  and  Lester,  p.  201.  Some  of 
these  suggestions  were  made  first  to  the  Texas  Library  and  His- 
torical Commission  in  a  progress  report  by  the  writer  in  September, 
191L 

147  Q-  "jj^g  Present  Status  of  Legislative  Reference  Work,"  by 
C.  B.  Lester  in  A.  L.  A.  Bui.  7:  199-202,  July,  1913  (Kaaterskill 
Conference  Papers  and  Proceedings) ;  "General  Conclusions"  of  J. 
David  Thompson  in  Amer.  Bar  Assn.  Special  Committee  on  Legis- 
lative Drafting  Report,  p.  36-38;  and  "Scientific  Law  Making,"  by 
J.  B.  Kaiser  in  the  Independent  75:  641-642,  Sept.  11,  1913. 


232  Law,  Legislative  Reference  and 

service  may  reasonably  be  expected  in  connection  with 
future  bureaus;  and,  if  the  writing  on  the  wall  is  to  be 
heeded,  there  seems  an  increasing  inclination  to  estab- 
lish legislative  reference  work  so  that  it  is  either  directly 
under  the  control  of  university  authorities,  or  has  the 
benefit  of  direct  co-operation  with  the  experts  in  political 
science,  government,  and  other  fields,  which  state 
university  affiliations  afford.  In  Wisconsin,  Indiana, 
Nebraska,  Colorado,  Washington,  Texas,  and  Ohio, 
the  head  of  the  legislative  reference  bureau  either  is  or 
has  been  a  member  of  a  university  faculty  of  political 
science  or  government.  In  Arizona,  too,  the  State 
University   is   making   plans   for  work   of   this   kind. 

Another  tendency  foreshadowed  is  seen  in  the  devel- 
opment within  the  legislative  reference  library  of  a 
municipal  reference  service  aiming  to  co-operate  with 
all  the  municipalities  in  the  state  which  do  not  have  a 
separate  local  agency  to  supply  a  service  of  this  nature. 
This  service  may  naturally  be  expected  to  develop  in 
bureaus  having  some  connection  with  the  state  univer- 
sity rather  than  in  bureaus  entirely  divorced  from  such 
associations.  Finally,  the  close  observer  will  see  in  the 
failure  in  the  first  instance  of  a  few  states  such  as  Arizona, 
Georgia,  and  South  Carolina  to  pass  legislative  reference 
bureau  laws  not  a  feeling  of  opposition  to  the  movement- 
but  rather  an  increasing  sense  and  a  wider  appreciation 
of  its  significance. 

From  the  standpoint  of  library  technique  a  classifi- 
cation acceptable  to  all  legislative  reference  libraries, 
at  once  both  complete  and  flexible,  indexed  and  generally 
available,  is  still  to  be  desired.  The  same  may  be  said 
of  a  complete  guide  to  subject  headings  and  a  guide  to 
uniform   indexing   of   laws,    bills,   and   documents. 


Municipal  Reference  Libraries  233 

In  the  matter  of  bill  drafting  the  Legislative  Drafting 
Committee  of  the  American  Bar  Association  has  called 
special  attention  to  a  need  which  legislative  reference 
departments  can  co-operate  in  attempting  to  supply. 
It  recommends  the  production  of  "something  like  a 
legislative  manual  or  code,  a  collection  of  directions 
or  suggestions  to  draftsmen,  and  of  clauses  for  constantly 
recurring  statutory  provisions  and  problems.  Care- 
fully worked  out,  and  having  the  sanction  of  the 
approval  of  representative  bodies  of  lawyers  and  of  stu- 
dents of  legislation,  such  a  guide  could  not  help  of  having 
considerable  effect  on  drafting  all  over  the  country, 
and  the  establishment  of  drafting  bureaus  would  be 
appropriately  supplemented  by  giving  their  work  from 
the    very    start  a    scientific  and    uniform  direction." '•'^ 

"»  See  its  Report,  p.  89;  1913.  Appendix  "C"  of  this  Report  pro- 
vides a  tentative  draft  of  a  topical  plan  for  instructions  to  draftsmen 
and  model  clauses. 


234  Law,  Legislative  Reference  and 

CHAPTER    IIL 

MUNICIPAL    REFERENCE   LIBRARIES. 

Topical  Outline. 

1.     Origin  and  Development. 

(a)  Purpose. 

(b)  Need. 

(c)  Scope  of  Work. 

e.g.,  Assistance  in  budget-making,  daily  prob- 
lems, special  problems,  drafting  ordinances, 
digesting  data  and  publishing  results  of  spe- 
cial investigations. 

(d)  Historical    Statemext. 

(e)  Present  Extent  of  Development. 
L     Agencies. 

(a)  A  separate  City  Department  of  Bureau 

{e.g.,  Baltimore  and  Kansas  City). 

(b)  Local     Public    Library    {e.g.,    Grand 

Rapids). 

(c)  Separate  branch  of  the  Public  Library 

located  in  the  City  Hall   {e.g.,  St. 
Louis,  Cleveland,  Toronto). 

(d)  Department  of  the  Public  Library  re- 

ceiving special   City  Support  {e.g., 
Milwaukee). 

(e)  L'niversity    Bureaus   (e.g.,  Wisconsin, 

Illinois,    Kansas,    Minnesota,    Ore- 
gon, Western  Rescr\'e,  Harvard). 

(f)  Municipal  Reference  Division  in  Legis- 

lative Reference  Library  {e.g.,  Indi- 
ana). 
2.     Other  Agencies  Doing  Municipal  Reference 
Work, 
(a)     Municipal  Research  Bureaus  {e.g..  New 
York). 


Municipal  Reference  Libraries  235 

(b)  Municipal     Efficiency     Commissions 

(e.g.,  Chicago,  Milwaukee). 

(c)  Public     Service     Commissions     (e.g., 

N.Y.,  1st  Dist.). 

(d)  Regular  City  Departments  (Testing 

Laboratories,  Street,  Health,  Water, 
Finance  Departments). 

(e)  National  Bureaus. 
3.     Table  of  cities. 

2.     Materials. 

(a)  Legal  and  Documentary. 

(The  relation  between  city  and  state). 
L     I.     State  Laws  on  Municipal  Government 
generally  and  on  Special  Topics. 

2.  City  Charters  and  Local  Acts. 

3.  City  Ordinances. 

4.  Mayors'  Messages  and  Council  Proceed- 

ings. 

5.  Collected  City  Documents. 

6.  Reports  of    Departments   and   Special 

Commissions. 

7.  State  Boards,  Officers,  and  Commissions 

having  Jurisdiction   over    Municipal 
Affairs. 

8.  National  Bureaus,  Offices,  and  Commis- 

sions considering  Municipal  Matters. 
IL     Guides  to   this   Legal   and   Documentary 
Material. 

(b)  Books. 

1.  Treatises  on   Municipal  Government  and 

Administration. 

(a)  General. 

(b)  Individual  Cities. 

(c)  Special  Types  of  Municipal  Govern- 

ment;   e.g.,  Commission  Form. 

2.  Treatises  on  Municipal  Corporation  Law. 


236  Law,  Legislative  Reference  and 

3.  Treatises  on  Special  Municipal  Topics,  e.g., 

Street     Railroads,    Franchises,     Health, 
Housing,  etc. 

4.  Yearbooks. 

L'nited  States,  Great  Britain,  Canada, 
Germany,  France,  Italy,  Austria,  and 
for  individual  cities. 

(c)  Serial  Publications. 

Periodicals,  society  proceedings,  etc. 

L     National. 

L     General  Municipal  Periodicals. 

2.  Specialized  Municipal  Periodicals. 

3.  Publications  not   Primarily  Municipal, 

including  University  Publications. 
H.     State. 
HL     Local. 

1.  Official. 

(Periodical  and  statistical  bulletins). 

2.  Private  Organizations. 

(a)  Official    Organs    of    Local    Civic 

Bodies. 

(b)  Commercial  News. 

(c)  Local,  not  Association  Organs. 

(d)  Private       Municipal      Research 

Bureaus. 

(d)  Miscellaneous  Pamphlets. 

(e)  Correspondence. 

(f)  Clippings. 

(g)  Maps,  Plats,  Surveys,  Charts,  etc. 
(h)     Bibliographies  of  Municip.^l  Affairs. 

L     L     General. 

2.     General:     Compiled    and     Issued    by 
Libraries. 
II.     L     Special  Topics. 

2.     Special  Topics:    Compiled  and   Issued 
by  Libraries. 


Municipal  Reference  Libraries  237 

3.  Handling  of  Material. 

(a)  Acquisition. 

1.  Sources  to  be  Watched  for  Notices  of  New 

Material. 

2.  Actual  Acquisition. 

(a)  Gift. 

(b)  Exchange. 

(c)  Purchase. 

(b)  Classification. 

(c)  Cataloguing. 

(d)  Shelving  and  Filing  Methods. 

(e)  Preparing  and  Digesting  Data. 

(f)  Drafting  Ordinances. 

4.  City  Council  Procedure. 

5.  Attitude    and  Qualifications   of   a    Municipal 

Reference  Librarian  and   Opportunities  for 
Training  for  This  Work. 

6.  General    Success    of     Libraries     Now    Estab- 

lished and  Present  Support  Given. 

7.  Future  Possibilities:  Co-operation;  an  Official 

National  Bureau;   an  International  Bureau. 

1.     Origin  and  Development. 

MUNICIPAL  REFERENCE  LIBRARIES. 

(a)     Purpose. 

The  municipal  reference  library  is  the  municipal 
counterpart  of  the  state  legislative  reference  library. 
Its  aim  is  primarily  to  supply  to  city  officials  in  their 
various  capacities,  and  to  others  interested,  the  accurate 


238  Law,  Legislative  Reference  and 

data  of  municipal  government  and  administration  in 
whatever  form  issued.  The  data  may  relate  to  executive, 
legislative  or  judicial  functions,  to  applied  science,  munici- 
pal ownership,  or  any  of  the  thousand  and  one  activities 
which  must  be  intelligently  undertaken  to  result  in 
efificient  city  government  in  the  fullest  sense  of  the  word. 

In  speaking  of  the  work  in  St.  Louis  in  his  Annual 
Report  for  1911-1912,  Dr.  Bostwick  strikes  the  keynote 
of  its  purpose  in  the  following  sentence:  ^ 

"With  the  establishment  of  the  municipal  reference 
branch,  the  Municipal  Assembly  need  pass  no  ordinance 
and  no  department  need  try  any  new  scheme,  measure 
or  device  without  first  ha\ing  full  knowledge  of  what 
other  cities  or  corporations  have  done  along  similar 
lines." 

(b)     Need. 

The  need  for  such  bureaus  is  plain  to  anyone  who  has 
observed  what  a  complex  problem  whether  in  adminis- 
tration and  business  management,  in  sanitary  engineering, 
or  in  practical  sociology  the  modern  municipality  has 
become,  and  to  one  who  has  followed  even  casually  the 
many  exposures  of  municipal  graft  -  and  inefficiency 
that  have  come  into  public  prominence  in  recent  years. 

Local  officers,  in  many  instances,  are  unprepared  for 
the  problems  that  come  before  them;  and  here  again 
the  experience  of  others,  definite  knowledge  and  clear 

1  St.  Louis  Public  Library  Annual  Report,  1911-1912,  p.  111. 

-  C.  R.  Atkinson,  "Recent  Graft  Exposures  and  Prosecutions"  in 
the  Nat.  Mun.  Rev.  1:  G72-79,  Oct.,  1912,  and  his  "Review  of 
Graft  Prosecutions  and  Exposures  for  the  Past  Year,"  in  Sat. Mun. 
Rev.  2:  439-145,  July,  1913;  also  Raymond  B.  Fosdick.  "The  Police 
Scandal  in  the  (iood  Old  Days"  in  the  Outlook  102:  34(3-49,  Oct.  19, 
1912,  and  Lincoln  Steffens,  The  Shame  of  the  Cities,  X.  V.  McClure 
Phillips,  1904. 


Municipal  Reference  Libraries  239 

thinking  can  be  of  service.  Politics  still  plays  too  im- 
portant a  role  in  local  government  and  it  is  all  the  more 
necessary  that  the  councilman  or  official  who  appreciates 
that  his  office  is  a  public  trust  should  have  a  municipal 
reference  library  at  his  service. 

(c)     Scope. 

Such  a  library  has  a  large  field  of  usefulness  and  many 
different  functions.  For  example,  in  furnishing  statistics 
and  other  comparative  data  it  can  aid  city  departments 
in  budget-making  and  at  the  same  time  offer  to  the 
interested  public  an  opportunity  to  consider  intelligently 
all  questions  of  municipal  finance  that  come  before  them 
as  voters.  In  his  daily  routine  each  official  is  confronted 
by  problems  on  which  the  experience  of  others  will  be 
of  value.  True,  each  city  has  its  special  problems  but 
usually  the  important  phases  of  even  these  have  been 
previously  encountered  elsewhere  and  an  available 
literature  has  grown  up  around  their  solution. 

To  mention  only  a  few  of  the  problems  common  to 
many  cities,  there  are  those  of  housing  and  sanitation, 
municipal  engineering,  traffic  regulations,  the  regulation 
of  public  utility  corporations,  the  inspection  of  milk, 
meat,  water,  and  weights  and  measures,  the  cleaning  of 
streets,  the  prevention  of  dust  and  smoke,  the  collection 
of  garbage;  and  such  subjects  as  taxi-cab  rates,  fortune 
tellers,  health  laws,  plumbing  regulations,  bill  boards, 
and  even  the  replanning  of  entire  cities  have  come 
recently  into  general  prominence. 

The  drafting  of  ordinances  may  become  a  function 
of  a  municipal  reference  bureau.  Ordinances  must  all 
be  drawn  to  conform  to  existing  statutory  and  constitu- 
tional provisions  and  so  to  draft  them  requires  at  times 


240  Law,  Legislative  Reference  and 

not  only  special  knowledge  and  training  but  access  to 
a  library  of  authorities  on  municipal  matters  and  con- 
stitutional law.  It  is  quite  desirable  also  that  such  a 
bureau  be  enabled  to  make  investigations  and  publish 
results  when  the  subject  is  one  on  which  the  Hght  of 
publicity  is  needed  or  where  the  published  results  can 
be  of  use  elsewhere. 

(d)  Historical  Statement. 

Municipal  reference  work,  so-called,  as  distinguished 
from  the  work  of  efficiency  commissions  and  bureaus  of 
municipal  research  on  the  one  hand,  and  from  that  of 
bureaus  of  statistics  on  the  other,  began  in  Baltimore 
January  1,  1907,  at  which  time  an  amendment  to  the 
city  charter  went  into  effect  creating  a  Department  of 
Legislative  Reference  for  that  city.  Most  city  depart- 
ments established  since  have  adopted  the  term  "munici- 
pal reference"  to  distinguish  them  from  state  legislative 
reference  bureaus  and  to  indicate  more  specifically  the 
exact  scope  of  their  work.  The  term  "legislative"  is 
not  inappropriate  as  applied  to  the  Baltimore  Depart- 
ment, however,  as  it  endeavors  to  serve  the  state  legis- 
lature in  addition  to  the  city  officials  and  municipal 
assembly. 

(e)  Present  Extent  of  Development. 
1.     Agencies. 

The  official  legal  connection  between  the  municipal 
reference  bureau  or  library  and  the  public  library,  and 
between  the  bureau  and  the  city  government  differs  in 
different  cities  and  it  is  important  to  note  carefully  these 
differences  as  the  efficiency  of  such  a  bureau  is  often 
determined  or  at  least  seriously  affected  by  this  relation- 
ship. 


Municipal  Reference  Libraries  241 

(a)  A  Separate  City  Bureau. 

As  has  been  noticed,  in  Baltimore  this  work  is  done  by 
a  city  department  entirely  distinct  from  the  public 
library.  From  August  19,  1910,  when  the  first  ordi- 
nance establishing  a  similar  department  in  Kansas  City 
was  approved  until  sometime  in  1913,  the  municipal 
reference  library  of  that  city  was  a  separate  branch  of 
the  city  government  and  the  ordinance  under  which  it 
operated  ^  was  regarded  as  a  model  for  other  cities  to 
follow  if  it  seemed  best  for  local  reasons  to  have  this  work 
kept  separate  from  the  work  of  the  public  library,  though 
it  should  be  said  that  in  the  case  of  Kansas  City  these 
two  institutions  co-operated  in  every  possible  way. 
During  1913,  the  city  council  saw  fit  to  alter  the 
status  of  the  municipal  reference  library  and  placed  it 
under  the  jurisdiction  of  its  public  service  committee. 

In  the  case  of  Baltimore  the  department  was  created 
by  an  amendment  to  the  city  charter  passed  by  the  state 
legislature.* 

(b)  Local  Public  Library. 

In  some  places  the  local  public  library,  without  creating 
a  separate  department  for  the  purpose,  makes  a  specialty 
of  furnishing  this  kind  of  information.  Such  is  the  case, 
for  example,  in  Grand  Rapids,  Michigan.  The  address 
of  Samuel  H.  Ranck,  librarian,  an  active  member  of  the 
National  Municipal  League,  on  "The  Public  Library 
as  a  Factor  in  Civic  Development"  ^  well  illustrates  what 
can  be  done. 

3  See  p.  410-12,  apx. 

*  Laws  of  Maryland,  1906,  Chapter  5Go,  reprinted  in  the  Legislative 
Reference  Department's  Annual  Report,  1907,  p.  15-16. 

^  National  Municipal  League  Conference  for  Good  City  Govern- 
ment Proceedings,  1910,  p.  385-94. 


242  Law,  Legislative  Reference  ami 

(c)  City  Hall  Branch  of  a  Public  Library. 

In  St.  Louis  the  Municipal  Assembly  by  a  concurrent 
resolution  ^  requested  the  public  library  to  establish  a 
municipal  reference  branch  in  the  City  Hall.  This  was 
done  and  a  branch  opened  October  23,  1913,  which  is  now 
well  under  way.  Although  located  in  the  city  hall  it  is 
a  part  of  the  public  library  just  as  is  any  other  branch 
librar\-.'' 

A  similar  situation  exists  either  as  a  result  of  a  specific 
ordinance  on  the  subject  or  by  direct  action  of  the  library 
trustees  in  Cleveland,  Chicago,  Oakland  (California), 
Portland  (Oregon),  Toronto,  and  elsewhere. 

(d)  A  Department  of  a  Public   Library   Receiving 

Special  Financial  Support. 

In  Milwaukee,  where  a  bureau  was  first  established  as 
a  separate  city  office  but  is  now  a  branch  or  department 
of  the  Public  Library  under  the  name  of  the  Municipal 
Reference  Library,  it  exists  by  virtue  of  an  ordinance^ 
of  the  city  council  authorizing  and  directing  the  Board 
of  Trustees  of  the  Public  Library  to  establish  it.  This 
change  has  put  the  municipal  reference  department  on  a 
permanent  basis,  independent  of  changing  adminis- 
trations, and  was  effected  as  a  result  of  the  recommenda- 
tions of  Milwaukee's  Bureau  of  Economy  and  Efficiency.^ 

*  See  apx.,  p.  41(i. 

'  Cf.  Jesse  Cunningham,  "The  Service  of  the  St.  Louis  Public 
Library  to  the  City,"  in  Liby.  Jr.  37:  50(>-0S,  Sept.,  1912,  and  A.  L. 
Bostwick,  "Relation  between  the  Municipal  Library  and  the  Legis- 
lator," in  Special  Libraries  4:  163-65,  Scpt.-Oct.,  1913. 

*  Sec  ap.\.,  p.  412-16. 

'  Milwaukee  Bureau  ot  Economy  and  Efficiency,  Eighteen  Afnnths' 
Work  Milwaukee,  1912.  (Bulletin  19,  especially  pages  18-19). 
It  is  of  interest  in  this  connection  to  note  that  the  Economy  and 
Efificiency  Bureau,  which  recommended  placing  the  municipal 
reference  library  on  a  permanent  basis,   independent  of  changing 


Municipal  Reference  Libraries  243 

The  librarian  in  charge  is  selected  by  the  public  library 
trustees  on  recommendation  of  the  public  librarian  and 
holds  office  during  good  behavior,  recognizing  no  superior 
officer  except  the  head  of  the  public  library.  His  salary 
is  fixed  by  the  library  trustees  but  the  city  has  made  an 
appropriation  of  $5,000  from  the  general  city  fund  to  be 
added  to  the  library's  money  and  used  only  for  municipal 
reference  purposes. 

In  this  case,  as  in  Kansas  City,  the  ordinance  is  very 
specific  as  to  the  duties  of  the  librarian  and  his  privileges 
in  seeking  and  receiving  the  co-operation  of  other  city 
officials. 

(e)     University  Bureaus. 

State  universities  are  taking  up  this  work  in  the 
interest  of  the  smaller  cities  of  their  states  which  feel 
that  they  cannot  support  a  local  bureau.  The  University 
of  Wisconsin  is  foremost  in  this  as  in  numerous  other 
fields  of  public  service  and  its  work  in  this  particular 
direction  has  been  well  described  by  the  head  of  the 
bureau.  Dr.  Ford  H.  MacGregor.^" 

Other   universities   doing   something   along   this   line 

administrations,  should  have  been  supplanted  by  a  Bureau  of  Munic- 
ipal Research  created  by  ordinance  as  a  part  of  the  Mayor's  office, 
the  director  of  which  is  appointed  by  the  mayor  and  confirmed  by  a 
majority  of  the  members-elect  of  the  council.  The  term  of  each 
director  of  this  new  Bureau  is  to  be  co-extensive  with  the  term  of 
office  of  the  mayor  by  whom  appointed. 

'0  Ford  H.  MacGregor's  "What  Wisconsin  is  Doing  for  its  Cities," 
in  Nat.  Mun.  Rev.  1:  378-85,  July,  1912;  also  his  "Municipal 
Reference  Bureau"  in  the  Municipality,  12:  52-56,  September,  1911; 
"The  Municipal  Reference  Bureau  of  Vv'isconsin"  in  American  City 
2:  65-68,  February,  1910;  and  "Municipal  Reference  Bureau"  in 
University  of  Wisconsin  Extension  Division  Bulletin  Serial  No.  320, 
General  Series  No.  186,  September,  1909. 


244  Law,  Legislative  Reference  and 

are  Oregon.  Washington."  Kansas,'-  Minnesota,''  Indiana, 
Western  Reserve,  Whitman  College,  Harvard,'^  Texas, '^ 
California,'^  Michigan,  Grinnell  College,  Iowa,  and 
Illinois. 

The  L'niversity  of  Illinois'  Municipal  Research  Bureau 
at  the  present  time  is  a  completely  classified  and  cata- 
logued collection  of  several  thousand  books  and  pam- 
phlets consisting  in  the  main  of  official  documents  of 
cities.  It  is  located  in  Lincoln  Hall  on  the  floor  above  the 
Seminar  Library  for  the  Departments  of  Political  Science 
and  History  in  which  are  kept  the  general  treatises,  and 
other  material  not  documentary  in  character,  on  all 
phases  of  municipal  government  and  administration, 
except  the  strictly  technical  municipal  engineering 
literature.  At  present  the  aim  of  the  bureau  is  to  form 
a  working  laboratory  for  ad\-anced  and  graduate  students 
in  all  lines  of  municipal  government.  There  is  no  appro- 
priation for  dev^eloping  additional  functions  and  the 
future  policy  has  not  been  definitely  determined,  but 
is  hoped  and  expected  that  if  adequate  legislative  support 
is  gained  the  bureau  will  develop  into  a  place  of  informa- 
tion to  which  all  the  cities  of  the  state  may  turn  with  the 
assurance  that  their  individual  .problems  will  receive 
the  prompt  attention  of  experts. 

"  C/.  Descriptive  circular  issued  by  the  Bureau  of  Municipal 
Research  of  the  Extension  Division,  University  of  Washington, 
Seattle,  Washington.     8  p.     1912. 

'-See  Richard  R.  Price  "Report  of  the  Secretary-Treasurer"  in 
Proceedings  of  the  League  of  Kansas  MunicipaUties  3:  17-18,  October, 
1911. 

^^ Library  Journal.  37:  567,  Oct.,  1912. 

"  "Harvard  Bureau  of  Municipal  Research"  in  Nat.  Mun.  Rev. 
1:307-08,  April,  1912. 

'5  Nat.  Mun.  Rev.  2:  714-15.  Oct.,  1913. 

'*  University  of  California  Bureau  of  Municipal  Research  Pre- 
liminary Announcement  of  the  Bureau  of  Municipal  Reference,  1913- 
1914.     6  p.     Berkeley,  1913. 


Municipal  Reference  Libraries  245 

At  Harvard  a  "Bureau  for  Research  in  Municipal 
Government"  was  established  the  fall  of  1911.  This 
is  intended  as  a  place  in  which  students  of  municipal 
government  may  obtain  practice  in  the  use  of  official 
data  and  only  incidentally  is  it  designed  to  be  a  center 
for  collecting  and  disseminating  information  in  the  form 
of  bulletins  or  otherwise.  It  is  interesting  to  note,  how- 
ever, that  Harvard  University  has  in  addition  offered 
to  give  gratuitously  to  the  cities  of  Cambridge  and  Boston 
advice  within  reasonable  limits  on  municipal  matters 
when  the  request  is  formally  made  to  the  President  of 
the  University. 

(f)      Municipal    Reference    Service    in    Legislative 
Reference  Bureaus. 

In  the  Indiana  Bureau  of  Legislative  and  Adminis- 
trative Information,  formerly  the  Legislati\'e  Reference 
Department  of  the  State  Library,  there  is  a  section 
devoted  to  municipal  reference  work  in  charge  of  Professor 
Frank  G.  Bates  of  Indiana  University.  The  Nebraska 
Legislative  Reference  Bureau  also  renders  special  service 
to  municipalities.  The  department  formerly  main- 
tained in  the  California  State  Library  was  called  the 
Legislative  and  Municipal  Reference  Department,  which, 
as  the  name  indicates,  rendered  special  service  to  both 
state  officials  and  the  legislature  and  to  municipalities 
throughout  the  state. ^^ 
2.     Other  Agencies  doing  Municipal  Reference  Work. 

A  certain  amount  of  municipal  reference  work,  if 
the  definition  already  giv'en  be  accepted,  is  being  done 
by  various  agencies  not  primarily  municipal  reference 
libraries.     The    work    of    these    other    agencies    differs 

"  Robert  A.  Campbell  "Legislative  and  Municipal  Reference 
Department"  in  News  and  Notes  of  California  Libraries,  Oct.,  1910, 
p.  534. 


246  Law,  Legislative  Reference  and 

from  that  done  in  the  municipal  reference  library  both 
in  kind  and  in  extent,  but  certain  activities  are  common 
to  all. 

(a)  Municipal  Research  Bureaus.  ^^ 
In  a  number  of  cities  there  are  privately  organized 
Bureaus  of  Municipal  Research,  or,  to  use  a  borrowed 
phrase,  agencies  of  citizen  inquiry  into  public  business. 
In  so  far  as  the  work  of  these  bureaus  consists  in  securing 
and  making  readily  accessible  to  the  public  the  com- 
parative data  of  municipal  experience,  they  may  be  con- 
sidered as  doing  so  much  municipal  reference  work. 
But  the  research  bureau  goes  further.  It  examines 
into  the  condition  of  the  city's  affairs  and  makes,  so  to 
speak,  an  efficiency  survey  of  local  methods  of  govern- 
ment and  administration.  On  learning  what  the  situa- 
tion is  in  a  certain  city  department  it  sets  about  making 
that  condition  what  it  ought  to  be.  It  studies  organi- 
zation, administrative  methods,  records,  files,  etc.,  and 
recommends  improvements.  In  Professor  Munro's 
words  the  research  bureau  possesses  "a  staff  of  inv^esti- 
gators  who  probe  their  way  into  every  branch  of  the 
municipal  service  and  emerge  with  data  upon  which 
they  base  recommendations  for  improvements."  '^  In 
this  manner  the  New  York  Bureau  of  Municipal  Re- 

'*  Cf.  "Bureaus  of  Municipal  Research"  in  Annals  of  the  Amer. 
Acad,  of  Pol.  and  Soc.  Science,  May,  1912,  p.  235-78;  describes 
the  work  of  the  bureaus  in  New  York,  Philadelphia,  Cincinnati  and 
Milwaukee. 

See  also  F.  A.  Cleveland,  "An  Agency  of  Citizen  Inquiry"  in  his 
Municipal  Administration  and  Accounting,  p.  346-()l  (X.  Y.,  1909) 
\V.  B.  Munro,  Government  of  American  Cities,  p.  37&-77  (N.  Y.,  1912); 
and  Henry  Bruere,  "The  Bureau  of  Municipal  Research"  in  Amer. 
Pol.  Science  Assn.  Proceedings  5:  111-21,  1908.  F"or  additional 
references,  see  p.  430-31,  and  the  annual  reports  of  the  bureaus 
themselves. 

'»  Munro,  op.  cit.,  p.  376. 


Municipal  Reference  Libraries  247 

search,  for  example,  during  the  six  years  of  its  existence 
has  been  doing  a  great  amount  of  valuable  work.^"  Other 
cities  have  followed  the  example  of  New  York  and  have 
created  such  agencies  of  citizen  inquiry  until  now  they 
must  be  numbered  by  the  score. 

(b)     Municipal  Efficiency  Commissions,  ^i 

Somewhat  similar  to  the  work  of  research  bureaus 
is  that  of  municipal  efficiency  commissions.  The  latter, 
however,  are  usually  officially  authorized  and  form 
definite  branches  of  the  city  government  whose  business 
it  is  to  see  that  each  city  department  is  setting  a  proper 
standard  of  work  and  insisting  upon  its  maintenance 
by  all  city  employees.  By  way  of  illustration  may  be 
cited  the  Milwaukee  Bureau  of  Economy  and  Efficiency 
which  was  created  in  1910  by  the  Common  Council 
for  the  investigation  of  departmental  accounts  and 
methods.  It  made  a  number  of  important  investiga- 
tions and  published  nineteen  bulletins  each  devoted 
to  a  phase  of  local  government,  administration,  or  local 
social  conditions  and  included  in  each  specific  recom- 
mendations for  improvement.  This  bureau  was 
organized  at  the  request  of  city  officials  and  had  their 
hearty  co-operation.  Professor  Commons  of  the  Uni- 
versity of  Wisconsin,  B.  M.  Rastall  and  Leslie  S.  Everts 
were  its  directors.^- 

20  Cf.  its  Six  Years  of  Municipal  Research  for  New  York  City, 
1906-1912.     N.  Y.,  1912. 

21  The  work  of  Bureaus  of  Municipal  Research,  Efificiency  Commis- 
sions, etc.,  is  not  sufficiently  differentiated  as  yet  tor  the  terms 
used  in  the  title  of  each  to  imply  that  a  certain  distinct  set  ot  func- 
tions and  no  other  are  performed  by  the  agency  so  named. 

22  See  John  E.  Treleven  and  P.  H.  Myers,  "Milwaukee  Bureau  of 
Economy  and  Efficiency"  in  Nat.  Mun.  Rev.  1:  420-25,  July,  1912; 
also  the  bureau's  Eighteen  Months'  Work  (Bulletin  19)  Milwaukee, 
1912. 


248  Law,  Legislative  Reference  and 

This  bureau  was  discontinued  in  April,  1912,  and  an 
ordinance  passed  September  30,  1912,  created  a 
Bureau  of  Municipal  Research  in  the  mayor's  office  in 
its  stead .^' 

In  Chicago  the  city  council  on  June  21,  1909,  created 
the  Chicago  Commission  on  City  Expenditures,  which 
investigated  and  reported  upon  matters  of  department 
finance.  Professor  C.  E.  Merriam  of  the  University 
of  Chicago  was  chairman.  The  commission  came  to 
an  end  April  17,  1911. 

The  Chicago  Bureau  of  Public  Efficiency  was  the 
outgrowth  of  this  Merriam  aldermanic  investigating 
commission,  an  unofficial  bureau  which  seemed  war- 
ranted by  the  preliminary  work  of  the  official  body  which 
it  superseded.  It  is  a  private  organization  endeavoring 
to  secure  more  efficiency  in  the  eight  local  governments 
of  Chicago  and  Cook  County.  To  date  this  bureau  has 
published  its  findings  in  a  series  of  some  24  bulletins 
and  is  now  under  the  direction  of  Mr.  Harris  S.  Keeler.^* 

The  Work  of  a  Municipal  Efficiency  Bureau,  a  state- 
ment prepared  by  the  committee  on  municipal  finance 
and  taxation  of  the  Civic  League  of  St.  Louis  in  April, 
1911,  gives  a  good  idea  of  what  is  expected  of  such  an 
agency,  and  at  the  same  time  illustrates,  as  do  even  the 
most  authoritative  discussions  of  this  work,  the  present 
confusion  in  terms  now  used  to  describe  all  these  various 
agencies  aiming  to  do  their  part  in  the  general  movement 
toward  better  government  and  more  improved  business 
methods  in  American  cities. 

"  See  apx.,  p.  414-lG,  for  text  ot  the  new  ordinance. 

-*  See  George  S.  Sikes'  "The  Chicago  Bureau  of  Public  Efficiency" 
in  the  Nat.  Mun.  Rev.  1:  455-57,  July,  1912. 


Municipal  Reference  Libraries  249 

(c)  Public  Service  Commissions. 

The  New  York  State  Public  Service  Commission  of 
the  first  district,  a  state  commission  having  jurisdiction 
over  public  service  or  utility  corporations  in  New  York 
City,  such  as  transportation  companies,  gas,  electric 
light,  power,  and  express  companies  is  constantly  hearing 
claims  and  adjusting  difficulties  arising  between  these 
companies  and  the  city  or  the  public.  This  necessitates 
an  accurate  knowledge  of  conditions  and  a  careful 
study  of  all  phases  of  the  numerous  questions  involved 
in  properly  determining  the  municipal  control  of  public 
utilities.  The  commission  has  an  excellent  library  ^^ 
and  its  statistician-librarian  is  Dr.  Robert  S.  Whitten,  for- 
merly head  of  the  New  York  State  Legislative  Reference 
Library,  and  a  well-known  authority  on  public  service 
corporation  valuation.-'' 

(d)  Regular  City  Departments. 

In  a  certain  sense,  too,  the  regular  city  departments 
and  bureaus  are,  of  necessity,  municipal  reference  and 

-*  See  Robert  H.  Whitten,  "The  Library  of  the  Public  Service 
Commission  of  New  York,  First  District,"  in  Special  Libraries,  1: 
18-20,  March,  1910.  Dr.  Whitten  is  the  author  of  a  standard 
treatise  entitled  Valuation  of  Public  Service  Corporations.  800  p. 
N.  Y.  Banks  Law  Publishing  Co.     1912. 

2^  A  description  of  the  general  work  of  both  state  and  city  public 
service  commissions  will  be  found  in  "Public  Service  Commission 
Reports"  {Nat.  Mun.  Rev.  1:  80-84,  January,  1912)  by  Robert  H. 
Whitten  and  "State  Public  Service  Commission  Reports,"  by  J.  1\I. 
Mathews  in  Nat.  Mun.  Rev.  2:  340-41,  the  latter  a  review  of  over  a 
dozen  recent  reports. 

For  New  York  only  see  "State  Regulation  of  Public  Service  Cor- 
porations in  the  City  of  New  York"  issued  by  the  Commission  in 
1912  and  a  review  of  this  pamphlet  in  Nat.  Mun.  Rev.  1:  451-52 
by  A.  E.  Pinanski.  A  list  of  references  on  the  New  York  Public 
Service  Commission  appears  in  James  B.  Reynolds'  Civic  Bibli- 
ography for  Greater  New  York,  N.  Y.  Char.  Pub.  Comm.  1911; 
p.  96-98. 


250  Law,  Legislative  Reference  and 

research  agencies,  for  they  are  constantly  experimenting 
with  new  methods  and  materials  and  are  producing 
the  data  other  agencies  must  use.  Testing  laboratories, 
street,  health,  water,  and  finance  departments  and 
bureaus  of  statistics  might  classify  in  this  group. 

(e)     National  Bureaus. 

A  municipal  efificiency  and  reference  bureau  has  been 
established  by  the  People's  Institute  of  New  York  City 
under  the  direction  of  Frederic  C.  Howe,  Mr.  John 
Collier,  and  Dr.  Carol  Andronici.  The  purpose  is  to 
create  a  definite  agency  for  gi\ing  more  effective  assist- 
ance to  cities  and  associations  on  specific  municipal 
problems  which  the  institute  has  done  in  an  unorgan- 
ized way  for  some  years.  "The  object,"  it  has  been 
stated,  "is  to  create  a  clearing  house  through  which 
municipalities  will  be  able  to  secure  experts  and  experts 
will  be  able  to  secure  employment  on  special  problems 
and    the   making   of   municipal  and  social  surveys."" 

Similar  in  scope  and  purpose  is  the  "American  City 
Bureau"  recently  announced  by  the  American  City. 
It  is  to  serve  as  a  general  clearing-house  for  information 
concerning  municipal  improvements  and  community 
advance  and  will  distribute  books  and  pamphlets  on 
municipal  problems.  It,  too,  is  located  in  New  York 
City. 

Later  on,  in  another  connection .^^  will  be  mentioned 
the  several  proposals  that  have  from  time  to  time  been 
made  for  a  National  Bureau  or  even  Department  of 
Municipalities  in  the  Federal  Government  at  Washington. 
It  is  also  of  interest  to  note  that  the  National  Progressive 

"  Nat.  Mun.  Rev.  2:  143-44,  Jan.,  1913. 
M  See  p.  270,  n.  50;  p.  343,  post. 


Municipal  Reference  Libraries  2")1 

Party  is  planning  a  Municipal  Service  with  its  Legis- 
lative Reference  Department  in  its  general  scheme  of 
publicity  work  and  the  dissemination  of  information. 

3.     Table  of  Cities. 

A  list  of  cities  in  which  municipal  reference  libraries, 
bureaus  of  municipal  research,  or  efficiency  commissions 
have  been  established  cannot  be  prepared  for  such  a 
work  as  this  W'ith  the  hope  of  being  up-to-date  on  the 
appearance  of  the  book.  The  number  is  increasing  too 
rapidly  for  that.  Still,  the  following  table,  necessarily 
incomplete  and  omitting  entirely  bureaus  of  municipal 
statistics,  is  so  indicative  of  municipal  progress  and 
activity  in  a  field  quite  barren  until  half  a  dozen  years 
ago  that  it  may  not  be  entirely  without  interest. 

List    of  Municipal  Reference  Libraries,  Refer- 
ence AND  Research  Bureaus,  and  Economy 
AND  Efficiency  Commissions.^^ 

Albany,  N.  Y. 

The  Fourth  Annual  Conference  of  Mayors  and 
other  city  officials  of  New  York  resolved  to  estab- 
lish a  state  bureau  of  municipal  information  which 
will  be  operated  by  the  cities  through  the  Con- 
ference and  in  co-operation  with  the  state  library  at 
Albany. 

29  This  list  is  based  mainly  on  "Municipal  Research  in  other 
Cities"  in  the  New  York  Bureau  of  Municipal  Research,  5t.r  Years  of 
Municipal  Research  for  New  York  City,  p.  62-65;  on  Horace  E. 
Flack's  "Report  on  Municipal  Reference  Libraries  and  Archives" 
in  Nat.  Mun.  League  Proceedings,  1911  (published  in  the  Nat.  Mun. 
Rev.  appendix,  January,  1913,  p.  13-15;  on  Myrtile  Cerf's  "Bureaus 
of  Public  Efficiency"  in  Nat.  Mun.  Rev.  2:  39-47,  January,  1913, 
and  Edward  M.  Sait's  "Research  and  Reterence  Bureaus,"  ib.  50- 
56.  Additional  information  has  been  secured  from  miscellaneous 
sources  and  correspondence. 


252  Law,  Legislative  Reference  and 

Atlanta,  Ga. 

A  municipal  research  committee  has  been  ap- 
pointed. 

Baltimore. 

The  Department  of  Legislative  Reference,  estab- 
lished in  1907,  does  some  legislative  reference  work 
for  members  of  the  state  legislature,  but  is  primarily 
a  municipal  reference  library  for  Baltimore.  Horace 
E.  Flack,  director. 

A  private  and  independent  Bureau  of  State  and 
Municipal  Research,  to  be  operated  along  the  lines 
of  the  New  York  bureau  and  e\'entually  to  extend 
its  services  to  all  municipalities  and  counties  of  the 
state,  was  opened  in  1913.     VV.  H.  Maltbie,  director. 

Berkeley. 

A  Public  Efficiency  Commission  under  considera- 
tion. 

Boston. 

The  Finance  Commission  has  a  Bureau  of  Muni- 
cipal Research  which  was  established  in  1910. 
George  A.  O.  Ernst,  Director. 

A  municipal  reference  department  for  the  public 
library  has  been  considered. 

Brooklyn. 

Has  a  municipal  reference  library  in  the  Socio- 
logical Division  of  the  Public  Library,  Montagu 
Street  building. 

Buffalo. 

Has  a  municipal  reference  bureau  in  the  city  hall 
under  the  direction  of  the  city  clerk. 

Chicago. 

For  some  years  maintained  a  Bureau  of  Statistics 
and    Municipal    Library    in    the    City    Hall.     On 


Municipal  Reference  Libraries  253 

January  22,  1912,  an  ordinance  was  passed  creating 
a  Bureau  of  Information  and  Publicity  to  take  the 
place  of  the  Bureau  of  Statistics  and  Municipal 
Library,  but  the  new  Bureau  was  never  organized 
nor  appropriated  for,  in  fact,  the  appropriation 
ordinance  of  January,  1913,  provided  for  the  main- 
tenance of  the  Bureau  of  Statistics  and  Municipal 
Library  abolished  by  the  later  ordinance. 

On  March  31,  1913,  another  ordinance  was  passed 
creating  a  Municipal  Reference  Library  under  the 
jurisdiction  of  the  Chicago  Public  Library.  The 
appropriations  formerly  allowed  the  Bureau  of 
Statistics  and  Municipal  Library  were  transferred 
to  the  support  of  the  newly  created  municipal  refer- 
ence library  with  the  exception  of  the  salary  of  the 
city  statistician.  The  chief  of  the  new  library 
(formerly  the  assistant  city  statistician)  was  put 
on  the  payroll  of  the  Chicago  Public  Library  and 
becomes  nominal  head  also  of  the  public  library's 
Civics  Room.^" 

Has  a  privately  supported  Bureau  of  Public  Efifi- 
ciency,  established  August,  1910.  Harris  S.  Keeler, 
Director.^^ 

The  city  civil  service  commission  has  an  effi- 
ciency division. 

^°  Cf.  Frederic  Rex,  "Chicago's  Bureau  of  Information  and  Pub- 
licity," in  Nat.  Mun.  Rev.  1:740-41,  October,  1912;  Charles  E. 
Merriani  and  J.  F.  Milton,  "Proposed  Department  of  Information 
and  Publicity,"  in  Chicago  City  ClubBulletin  2:  165-70,  July  8,  1908; 
Chicago  City  Council  Journal  Jan.  22,  1912  (p.  2607-08,  advance 
sheets),  Jan.  2,  1913  (p.  3050,  advance  sheets),  and  March  31,  1913 
(p.  4273-74,  advance  sheets). 

Concerning  the  Public  Library  Civics  Room,  see  Henry  E.  Leg- 
ler's  address  before  a  committee  of  the  Chicago  Association  of  Com- 
merce in  Chicago  Commerce,  April  26,  1912,  p.  23-27. 

The  Bureau  of  Statistics  and  Municipal  Library  was  described  by 
Frederic  Rex  in  the  Educational  Monthly  4:  286-89,  April,  1910, 
under  the  title  "Municipal  Library." 

31  See  George  C.  Silces'  "The  Chicago  Bureau  of  Public  Efficiency" 
in  Nat.  Mun.  Rev.  1:  455-47,  July,  1912. 


254  Law,  Legislative  Reference  and 

Cincinnati. 

Has  a  privately  supported  Bureau  of  Municipal 
Research,  established  July,  1909.  Rufus  E.  Miles, 
Director. 

Has  a  municipal  reference  library  in  the  city  hall 
under  the  direction  of  the  University  of  Cincinnati. 
S.  Gale  Lowrie,  Director. 

Public  Library  has  a  Civics  Room. 

Dallas. 

Has  a  municipal  reference  department  of  the 
public  library-. 

Cleveland. 

Has  a  municipal  reference  branch  of  the  public 
library  in  the  city  hall. 

A  Bureau  of  Information  and  Publicity  is  provided 
for  in  the  new  charter  recently  voted  on,  which  will 
become  a  part  of  the  new  city  government  January  1, 
1914. 

Dayton,  O. 

Has  a  privately  supported  Bureau  of  Municipal 
Research,  established  1913.     L.  D.  Upson,  Director. 

Des  Moines. 

Has  a  Bureau  of  Public  Efficiency  and  Economy, 
established  October,  1911.  J.  G.  Mitchell,  Secre- 
tary. 

Detroit. 

Public  Library  has  a  Civics  Room. 

Fort  Wayne,  Indiana, 

Has  a  Business  and  Municipal  Department  of  the 
Public  Library. 

Grand  Rapids. 

The  public  library  does  municipal  reference  work, 
but  has  no  separate  department  for  it. 


Municipal  Reference  Libraries  255 

Hoboken. 

Has  the  Robert  L.  Stevens  Fund  for  Municipal 
Research,  established  1910.  Genevieve  W.  Beavers 
Secretary.  ' 

Jersey  City. 

Has  a  Bureau  of  Municipal  Research,  established 
Feb.,  1912.     Frank  Stevens,  Director. 

Kansas  City,  Mo. 

A  Municipal  Reference  Library,  entirely  separate 
from  the  public  library,  was  established  in  1910  and 
remained  under  the  direction  of  Charles  H.  Talbot 
until  it  was  transferred  to  the  jurisdiction  of  the 
Public  Service  Committee  of  the  council  in  the 
spring  of  1913. 

The  Board  of  Public  Welfare  has  a  Research 
Bureau  .^- 

Los  Angeles. 

Had  a  Bureau  of  Municipal  Research  at  Bethle- 
hem Institute. 

A  Bureau  of  Public  Efificiency  is  under  considera- 
tion. 

The  public  library  has  a  special  collection  of 
materials  on  municipal  government. 

Memphis. 

Has  a  Bureau  of  Municipal  Research,  established 
1909.  Activities  temporarily  ceased  in  1911  for 
lack  of  funds.     E.  O.  Gillican  is  Secretary. 

Milwaukee. 

Has  a  Municipal  Reference  Library  receiving 
special  city  support  from  the  city,  but  under  the 
jurisdiction  of  the  public  library,  located  in  the 
city  hall. 

32  See  L.  A.  Halbert,  "Board  of  Public  Welfare  of  Kansas  City"  in 
Nat.  Mun.  Rev.  1:  417-20,  July,  1912. 


256  Law,  Legislative  Reference  and 

Milwaukee.  —  icont.) 

The  official  Bureau  of  Economy  and  Efficiency 
ceased  April,  1912,  and  was  supplanted  by  an 
ordinance  of  Sept.  30,  1912,  by  a  Bureau  of  Muni- 
cipal Research,  the  director  of  which  is  appointed 
by  the  Mayor.     Mr.  Ralph  Bowman,  Director. 

Minneapolis. 

Has  a  mtlnicipal  reference  department  of  the  pub- 
lic library. 

New  York  City. 

Had  a  Bureau  of  Statistics  and  small  library  in 
the  office  of  the  Commissioner  of  Accounts,  estab- 
lished 1873. 

Has  a  privately  supported  Bureau  of  Municipal 
Research,  established  1906.  W.  H.  Allen,  Henry 
Bruere  and  F.  A.  Cleveland,  Directors. 

The  Public  Library  has  probably  the  best  col- 
lection of  city  documents  in  the  United  States  and 
does  a  great  deal  of  municipal  reference  work  with 
city  officials,  though  it  has  no  municipal  reference 
department. 

Has  a  Municipal  Reference  Library  in  the  De- 
partment of  Finance  under  the  general  supervision 
of  the  Comptroller.  Formally  opened  March  31, 
1913,  it  will  be  housed  eventually  in  the  new  Muni- 
cipal Building.  The  present  Comptroller  believes 
that  the  municipal  reference  library  should  be  a 
separate  division  of  the  city  government  under  the 
control  of  the  Board  of  Estimate  and  Apportionment 
and  not  an  adjunct  of  the  Department  of  Finance. 
A.  W.  von  Hohoff,  in  charge.^^ 

"  See  Library  Journal  38:  270-72,  May,  1913.  The  speeches  at 
the  opening  of  the  library  were  printed  in  a  commemorative  booklet. 
Later  information  appears  in  the  address  ot  (ieorge  McAneny, 
Borough  President,  on  "The  Municipal  Reference  Library  as  an 
Aid  in  City  Administration,"  in  Liby.  Jour.  38:  509-13,  Sept.  1913. 


Municipal  Reference  Libraries  257 

Newark. 

Has  a  municipal  reference  library  as  a  branch  of 
the  City  Clerk's  office  in  the  city  hall. 

The  public  library  has  a  business  men's  branch 
and  is  interested  in  all  civic  betterment  movements. 

Oakland. 

Has  a  municipal  reference  library  in  the  city  hall 
under  the  direction  of  the  public  library.'* 

Omaha. 

Considering  a  Public  Efficiency  Bureau. 

Philadelphia. 

The  Public  Library  has  a  municipal  reference 
department. 

Has  a  privately  supported  Bureau  of  Municipal 
Research,  established  July,  1909.  Jesse  D.  Burks, 
Director. 

Pittsburgh. 

The  Civic  Commission  has  a  Committee  on  Muni- 
cipal Research,  established  January,  1909.  Allen  T, 
Burns,  Secretary. 

The  public  library  is  interested  in  establishing  a 
Municipal  Reference  Library. 

Pasadena. 

Has  an  efficiency  department  under  the  Mayor, 
established  1911. 

Portland,  Ore. 

Has  a  municipal  reference  branch  of  the  public 
library  in  the  city  hall. 

Has  proposed  an  efficiency  commission  or  re- 
search bureau. 

3*  See  Oakland  Public  Library  Report,  1912,  p.  12  sq. 


258  Law,  Legislative  Reference  and 

Reading,  Pa. 

Has  proposed  a  municipal  reference  bureau. 

St.  Louis. 

Has  a  municipal  reference  branch  of  the  public 
library-  in  the  city  hall,  established  October,  191L 
Andrew  L.  Bostwick,  branch  librarian. 

St.  PauL 

An  efficiency  bureau  has  been  proposed. 

San  Francisco. 

The  Deputy  City  Clerk  has  organized  a  Municipal 
Reference  Library. 

A  Bureau  of  Efficiency  was  created  July  9,  1912, 
under  the  direction  of  the  Civil  Service  Commis- 
sion.    E.  R.  Zion,  Director. ^^ 

The  public  library  has  a  good  collection  of  muni- 
cipal government  material. 

Seattle. 

The  Public  Library  has  a  municipal  reference 
department. 

Wallingford,  Conn. 

Has  a  Bureau  of  Municipal  Research,  established 
1911.     Martin  F.  Plunkett,  Secretary. 

Washington,  D.  C. 

The  Public  Library  has  endeavored  to  secure 
appropriations  for  a  Municipal  Reference  Depart- 
ment. 

"  Nat.  Mun.  Rev.  2:  156,  Jan.,  1913. 


Municipal  Reference  Libraries  259 

Foreign. 

Berlin,  Germany. 

Has  the  Stadtetag,  established  190Q?^ 
Has  a  Magistrats  Bibliotek. 

Has  an  important  library  in  the  Bureau  of  Statis- 
tics." 

Paris,  France. 

Has  the  Library  of  the  Prefecture  of  the  Seine. 

Toronto,  Canada. 

Has  a  Municipal  Referenfce  Branch  of  the  Public 
Library  in  the  City  Hall,  established  191L 

Municipal   Reference   Libraries  and    Research 
Bureaus   in   Universities. 

The  College  of  the  City  of  New  York  is  to  maintain 
a  permanent  municipal  budget  exhibit.'* 

Columbia  University,  New  York  City.  Politics 
Laboratory,  191L  Professors  Charles  A.  Beard 
and  E.  M.  Sait,  Directors. 

Grinnell  College,  Iowa.    Bureau  of  Public  Service. 

Harvard  University,  Cambridge.  Bureau  of  Re- 
search in  Municipal  Government.  Professor  W. 
B.  Munro,  Director. 

36  Annals  of  the  Amer.  Acad,  of  Pol.  and  Social  Science 31:  704-06, 
May,  1908. 

="  Eugen  Moritz,  "Die  Bibliotek  des  statistischen  Amts  der  Stadt 
Berlin"  in  Heinrich  Silbergleit,  Das  Statistischen  Amts  der  Stadt  Ber- 
lin, Berlin,  1912,  p.  62-68.  In  this  account  of  the  library  of  the 
Berlin  Bureau  ot  Statistics  the  book  fund  for  1911  is  given  as  ISOOM; 
number  of  volumes  February  1,  1912,  as  36,000  with  an  insured 
value  of  70,000M. 

38  Nat.  Mun.  Rev.  1:  733,  Oct.,  1912. 


260  Law,  Legislative  Reference  and 

Indiana  University,  Bloomington,  Indiana.  Pro- 
fessor Frank  G.  Bates  is  in  charge  of  the  muni- 
cipal reference  work  of  the  State  Bureau  of 
Legislative  and  Administrative  Information  at 
Indianapolis. 

University  of  California.  Has  announced  a  Bureau 
of     Municipal     Research,     1913.^^     Berkeley. 

University  of  Cincinnati,  Cincinnati.  Is  in  charge 
of  the  Municipal  Reference  Library  at  the  City 
Hall.    S.  Gale  Lqwrie,  Director. 

University  of  Illinois,  Urbana.  Bureau  of  Muni- 
cipal Research.  Professor  John  A.  Fairlie, 
Director. 

University  of  Kansas,  Lawrence.  Municipal  Refer- 
ence Bureau,  1909. 

University  of  Michigan  has  announced  a  Bureau 
of  Municipal  Reference  to  serve  all  the  cities 
of  the  state  especially  along  the  line  of  redrafting 
charters.     Dr.  Robert  T.  Crane,  Director. 

University  of  Minnesota,  St.  Paul.  Plans  a  Mu- 
nicipal Reference  Bureau  in  its  extension  division, 
under  the  direction  of  Professor  Richard  R.  Price. 

University    of    Oregon,    Eugene.      Considering    it. 

University  of  Texas,  Austin.  Has  created  a  Bureau 
of  Municipal  Research  and  Reference,  1913. 
Professor  Herman  G.  James,  Director.*** 

"  Cf.  University  of  California  Extension  Division,  Bureau  of  Muni- 
cipal Rcterence  Bulletin  No.  1.     6  p.     1913. 
«  Nat.  Mun.  Rev.  2:  714-15,  Oct.,  1913. 


Municipal  Reference  Libraries  2()1 

University  of  Washington,  Seattle.  Bureau  of 
Municipal  and  Legislative  Research.  Dr.  Herman 
A.  Brauer,  Director. 

University  of  Wisconsin,  Madison.  Has  a 
Municipal  Reference  Bureau  in  the  Extension 
Division.  Dr.  Ford  H.  MacGregor,  Municipal 
Reference  Librarian. 

Western  Reserve  University,  Cleveland.  Planning 
a  Municipal  Research  Bureau  to  co-operate  with 
the  Municipal  Reference  Department  of  the 
Public  Library  located  in  the  City  Hall.  Pro- 
fessor A.  R.  Hatton,  in  charge. 

Whitman  College,  Walla  Walla,  Washington.  Mu- 
nicipal Reference  Department.  Professor  Charles 
G.  Haines,  Director.'*^ 

Foreign. 
The    Academy    of    Municipal    Administration, 

Duesseldorf,  Germany.'*' 

2.    Materials. 

(a)     Legal  and  Documentary. 
Before  discussing  materials  in  the  concrete  it  may  be 
fitting  to  recall  in  a  word  the  fundamental  relationship 

"  Nat.  Mun.  Rev.  2:  501-03,  July,  1913. 

*^  Similar  work  to  that  of  municipal  research  bureaus  is  being 
done  to  some  extent  by  other  county,  state,  and  national  agencies 
such  as  the  Alameda  County  Tax  Association,  Oakland,  Cali- 
fornia; The  Wayne  County  Bureau  of  Municipal  Research, 
Richmond,  Indiana;  the  Westchester  County  Research  Bureau, 
White  Plains,  N.  Y. ;  the  Municipal  Efficiency  and  Reference 
Bureau  of  the  People's  Institute,  New  York  City;  the  American 
City  Bureau,  New  York  City;  the  Municipal  Service  Division 
of  the  National  Progressive  Service  of  the  Progressive  Party  and 
the  President's  Commission  on  Economy  and  Efficiency. 
Massachusetts,  Minnesota,  New  York,  New  Jersey,  Pennsylvania 
and  Illinois  have  state  Commissions  on  Economy  and  Efficiency 
investigating  at  the  present  time. 


262  Law,  Legislative  Reference  and 

between  city  and  state  in  this  country,  a  relationship 
which  has  either  been  created  by  the  first  materials  to  be 
discussed  or  which  has  been  a  prominent  factor  in  their 
production. 

Professor  Munro  introduces  his  chapter  on  "The  City 
and   the  State""  with  the  following  paragraph. 

"The  American  city  is  a  municipal  corporation  created 
by  the  state  under  its  reserved  rights  of  internal  sov- 
ereignty; it  derives  all  its  powers  from  state  laws,  and 
it  is  subordinate  in  all  its  activities  to  the  state's  author- 
ity. It  is  one  of  the  agents  which  the  state  uses  for  the 
more  convenient  administration  of  local  government. 
To  this  end,  the  city  is  intrusted  with  only  such  powers 
as  the  legislature  may  think  wise  to  confer,  and  even 
in  such  grants  it  acquires  no  vested  right.  Municipal 
authority  may  be  enlarged,  abridged  or  entirely  with- 
drawn by  the  legislature  at  pleasure.  In  other  words,  the 
state  authorities  have  the  right  to  govern  the  city  just  as 
they  govern  any  other  area  within  their  jurisdiction. 
This  is  a  fundamental  principle  of  American  law,  so  well 
recognized  that  it  is  not  nowadays  open  to  question." 

Frequently  steps  have  been  taken  to  prevent  the  abuse 
of  this  power  on  the  part  of  the  state.  They  have  re- 
sulted in  constitutional  provisions  classifying  cities  and 
preventing  special  legislation,  and  in  the  enactment  of 
municipal  codes  applicable  to  all  the  cities  in  a  state. 

The  legal  and  documentary  materials  to  be  enu- 
merated illustrate  the  powers  reserved  by  the  state,  the 
powers  granted  by  the  state  to  the  cities,  and  the  powers 
of  supervision  retained  in  cases  where  a  large  amount 
of  local  autonomy  has  been  acquired. 

^'William  Bennett  Munro,  The  Government  of  American  Cities, 
Macmillan,  N.  Y.,  1912,  p.  53-79.  His  "References."  p.  79,  note 
additional  sources  where  the  subject  is  given  extended  treatment. 


Municipal  Reference  Libraries  263 

I,     1.     State  Laws  on  Municipal  Government  generally, 
and  on  Special  Topics. 

These  would  include  (a)  provisions  in  the  state  con- 
stitution on  municipal  government,  usually  restrictions 
on  the  powers  of  the  legislature,  which  provisions  would 
form  the  basis  of  the  legislative  control  over  municipal 
affairs;  all  state  legislation  on  municipal  matters  must  be 
consistent  with  the  constitutional  provisions  on  that 
subject;  (b)  a  general  municipal  corporations  act,  or 
as  it  is  more  often  called,  a  municipal  code  containing 
all  the  state  laws  pertaining  to  all  local  governments 
in  that  state;  (c)  general  laws  on  one  particular  phase 
of  municipal  government  but  applicable  to  all  the  cities 
of  the  state,  e.g.,  state  laws  regulating  municipal  accounts, 
finance,  or  municipal  public  utilities;  (d)  general  laws 
applying  to  cities  of  a  certain  class  in  states  where  cities 
are  classified,  for  instance  on  a  basis  of  population. 

2.     City  Charters  and  Local  Acts. 

City  charters  are  fundamental  documents  of  city 
government  whenever  granted.  Whether  or  not  charters 
are  granted  in  a  particular  state  to  cities  of  a  certain  size 
depends  on  whether  or  not  there  are  provisions  in  the 
constitution  of  that  state  or  some  general  state  law  to 
that  effect.  When  granted  they  are  generally  acts 
passed  by  the  legislature,  an  instance  of  state  legislative 
control  over  city  government,  though  recently  some 
states  by  constitutional  amendments  have  made  it 
possible  for  cities  to  frame  and  adopt  their  own  charters 
by  popular  convention  and  referendum  methods. 

A  municipal  reference  library  should  have  a  collection 
of  separate  charters. 


264  Law,  Legislative  Reference  and 

It  should  also  have  collections  of  city  charters,  but 
these  are  few.     Among  them  are: 

Hatton,  A.  R. 

Digest  of  City  Charters.     Chicago.     1906. 

This  brings  together  under  definite  heads  the  main  provi- 
sions of  constitutions,  charters,  and  other  statutes  relating  to 
the  powers  and  structure  of  the  governments  of  a  number 
of  important  cities,  American  and  foreign.  It  contains  also 
the  greater  part  of  the  model  corporations  act  suggested  by 
the  National  Municipal  League.^''  The  compilation  was  pre- 
pared by  Professor  Hatton  for  the  Chicago  Charter  Conven- 
tion of  1906. 

James,  E.  J. 

The  Charters  of  the  City  of  Chicago.  Chicago. 
1898-99. 

President  James'  work  is  in  two  parts;  the  first  covers 
1833-37,  the  second  1838-51. 

Beard,  C.  E. 

Loose  Leaf  Digest  of  the  Short  Ballot  Charters 
—  a  Documentary  History  of  the  Commission 
Form  of  Government.     N.  Y.,  1912. 

In  addition  to  its  valuable  subject-matter  Professor  Beard's 
book  is  an  interesting  example  of  a  type  of  book-making. 

Other  laws  relating  to  cities  are  the  special  or  local 
acts  of  the  legislature,  by  which  are  meant  acts  relating 
to  certain  affairs  in  a  single  city  only. 

3.     City  Ordinances. 

"Ordinance"  is  the  term  applied  to  the  laws  passed 
by  a  municipal  legislative  body  whether  known  as  the 
city  council,  municipal  assembly,  or  board  of  aldermen. 
Important  ordinances  usually  appear  first  in  the  local 
newspapers.  In  some  places  publication  in  this  form  is 
mandatory,  and  in  small  cities  it  is  often  the  only  form 

**  The  whole  act  and  the  complete  municipal  program  of  the 
League  appear  in  Horace  E.  Deming's  The  Government  of  American 
Cities.     N.  Y.       Putnam.      1909.     p.  241-304. 


Municipal  Reference  Libraries  265 

in  which  they  are  made  public.  Where  a  city  council 
journal  is  published,  they  will  appear  there. 

In  some  cities  a  volume  of  ordinances  is  published 
each  year  corresponding  to  the  publication  of  the  state 
session  laws.  More  often  cities  publish  compiled  ordi- 
nances at  irregular  intervals  in  which  are  frequently  in- 
cluded with  the  local  ordinances  in  force  at  the  time  of 
publication  whatever  state  laws  there  are,  both  general 
and  special,  relating  to  that  particular  city.  The  term 
Compiled  Ordinances  or  Municipal  Code  is  usually  applied 
to  such  a  volume,  a  good  example  of  which  is  the  Chicago 
Municipal  Code,  1911. 

The  compiled  ordinances  of  cities  form  the  data 
necessary  for  a  comparative  study  of  local  administra- 
tion. 

4.     Mayors'  Messages  and  Council  Proceedings. 

The  Mayor  sends  annually  to  the  city  council  a  message 
dealing  with  the  work  done  by  the  city  the  past  year 
and  recommending  certain  matters  for  the  council's 
consideration.  These  are  valuable  documents  giving  a 
history  of  the  administration's  activities  and  policies 
and  show  where  the  administration  stands  on  questions 
of  general  public  welfare.  They  are  frequently  issued 
separately,  usually  form  the  first  document  in  the  collected 
city  documents,  and  appear  also  in  the  journal  or  pro- 
ceedings of  the  council  to  which  they  are  addressed. 
Other  messages  sent  from  time  to  time  to  the  council 
by  the  mayor  appear  in  its  journals  in  the  same  manner 
that  governors'  messages  appear  in  the  journals  of  the 
state  legislature. 

The  Journal  (Minutes  or  Proceedings)  of  the  city's 
legislative  body  —  be  it  council,  assembly,  or  board  of 


266  Law,  Legislative  Reference  and 

aldermen  —  is  also  of  primary  importance.  The  munic- 
ipal reference  library  should  have  the  bound  volumes 
for  years  past,  and  advance  sheets,  as  issued  weekly  or 
otherwise,  for  the  latest  action  taken.  This  journal 
generally  gives  the  ordinances  in  full  as  passed  and  shows 
whatever  action  the  council  takes  on  all  matters  laid 
before  it. 

When  a  Council  Manual  is  published,  it  usually  con- 
tains a  list  of  the  city  offices  and  councilmen  and  perhaps 
the  rules  of  the  council  showing  the  parliamentary  pro- 
cedure it  adopts.  Statistical  and  historical  data  are  at 
times  included.  Sometimes  there  is  a  "city  manual" 
somewhat  similar  to  a  "council  manual"  giving  various 
facts  about  the  city,  its  history  and  its  government,  as 
is  the  case  in  Chicago.''^ 

5.     Collected  Documents. 

Many  cities  issue  annually  or  biennially,  in  a  set  of 
one,  two,  three,  or  more  volumes,  the  collected  reports 
of  the  various  departments  of  the  city  government 
which  are  mentioned  separately  in  the  section  following. 
These  correspond  to  the  collected  documents  of  the 
states  and  are  variously  called  City  Documents,  Annual 
Reports,  Year  Book,  Municipal  Doctiments,  Mayors' 
Messages  and  Reports  of  City  Officers. 

In  Special  Libraries  for  June,  1913,  will  be  found  an 
article  on  "American  Municipal  Documents"  in  which  a 
comparative  study  is  made  of  the  method  and  form  of 
publishing  both  the  collected  and  separate  issues  of  depart- 
ment reports  and  the  means  employed  for  their  distri- 
bution.    Suffice  it  to  say  here  that  the  average  volume 

*'"  Cf.  "City  Manuals  and  Registers"  in  Nat.  Mun.  Rev.,  1:  p.  461, 
July,  1912. 


Municipal  Reference  Libraries  267 

of  collected  city  documents  is  certainly  not  made  with 
clear  insight  into  the  possibiHties  of  its  usefulness  as  a 
book  of  reference  and  permanent  record.  Cincinnati 
has  made  a  beginning  which  all  cities  will  do  well  to  follow 
in  its  effort  to  produce  a  readable  volume  of  intelligible 
and  interesting  data  in  its  Annual  Reports  for  1912. 
Mayor  Hunt  assigned  to  the  "Inspector  for  the  Mayor"  *'^ 
the  duty  of  editing  the  several  reports.  Statistical 
matter  has  been  condensed,  much  purely  perfunctory 
data  eliminated,  many  interesting  illustrations,  a  useful 
table  of  contents,  and  a  serviceable  index  added.  The 
whole  is  printed  on  thin  paper  of  more  than  average 
quality  and  neatly  bound. 

One  of  the  most  difficult  problems  of  any  library  in 
connection  with  its  handling  of  municipal  documents 
is  the  problem  of  selection.  The  New  York  Public 
Library  and  the  Library  of  Congress  aim  at  practical 
completeness  as  far  as  the  collected  documents  of  the 
cities  of  the  United  States  are  concerned  and  their  main 
problem  of  selection  arises  in  connection  with  foreign 
material.  The  policy  of  the  Library  of  Congress  is  to 
secure  everything  published  by  cities  of  over  100,000 
population  and  the  collected  documents  from  all  cities 
that  will  supply  them.  For  cities  of  50,000  or  over  the 
library  endeavors  to  secure  the  separate  or  departmental 
reports  on  the  following  subjects:  Finance,  Vital  Sta- 
tistics, Police,  Park  Commissioners,  Water  Supply, 
Sewerage,  City  Engineering,  Scavenging,  Roads,  Street 
Railways,  and  Fire. 

Other  libraries  interested  in  municipal  documents 
seem  to  let  their  policy  of  selection  be  determined  largely 
by  local  needs  as  they  arise  and  request  documents  on 

«  Mr.  L.  L.  Evans. 


268  Law,  Legislative  Reference  and 

certain  subjects  when  those  subjects  are  of  special  local 
interest.  The  only  uniformity  observable  is  in  setting 
a  definite  limit  by  size  of  cities  from  which  all  documents 
are  requested,  or  in  selecting  cities  where  the  problems 
to  be  met  are  known  definitely  to  resemble  those  of  the 
local  community.  The  concensus  of  opinion  seems  to  be 
also  that  except  in  a  few  cases  where  the  public  library 
handles  exchanges  an  attempt  to  get  permanently  on  the 
regular  mailing  list  of  department  reports  is  more  likely 
than  not  to  prove  unsuccessful.^' 

6.     Reports  of  Departments  and  Special  Commissions. 

The  reports  of  local  officers  are  published  separately 
in  cities  of  any  size  whether  or  not  they  are  later  brought 
together  in  collected  edition.  Among  such  reports  are 
those  of  the  comptroller,  treasurer,  auditor,  city  clerk, 
police,  fire  and  health  departments,  park  board,  city 
attorney  (solicitor  or  corporation  counsel),  and  whatever 
other  officers  or  boards  there  may  be  in  the  government 
which  are  by  ordinance  or  otherwise  obliged  to  present 
annual  reports  to  the  mayor  or  city  council. 

WTiat  city  offices  there  are  and  who  fill  them  will  be 
learned  in  practically  all  cases  by  consulting  tlie  city 
manual,  council  manual,  or  even  the  local  directory  or 
telephone  directory.  The  city  charter  will  name  the 
important  offices  but  others  may  be  created  by  ordinance. 

Special  reports  of  officers  and  reports  of  special  com- 
missions investigating  various  municipal  problems  often 
form  valuable  additions  to  the  ordinary  run  of  city 
documents.  They  have  been  concerned  with  such 
matters  as  housing  conditions,  weights  and  measures, 

*''  The  writer  has  in  mind  a  more  extended  discussion  of  the  ques- 
tion of  present  practice  and  approved  policies  for  selecting  city  docu- 
ments, to  be  published  later. 


Municipal  Reference  Libraries  269 

milk  inspection,  and  many  other  questions  of  social, 
economic,  scientific  or  administrative  importance.  The 
light  of  publicity  is  more  and  more  being  brought  to  bear 
upon  problems  of  local  government  and  intelligent  study 
•is  being  employed  in  their  solution. 

Several  reports  of  this  nature,  come  to  mind,  —  the 
report  of  New  York's  mayor's  committee  on  public  baths 
and  public  comfort  stations  in  1907;  the  Chicago  city 
council's  local  transportation  committee's  report  on  the 
electrification  of  railway  terminals,  1908;  the  New  York 
Tenement  House  Commission  report,  1900,  by  Lawrence 
Veiller;  the  report  of  the  Chicago  Harbor  Commission, 
1908,  containing  The  Development  of  Commercial  Ports 
by  J.  P.  Goode  of  the  University  of  Chicago,  having 
special  reference  to  opportunities  at  Chicago  as  well  as 
a  discussion  of  what  the  ports  of  Europe  are  doing;  the 
Parsons,  Hering,  and  Whinery  report  on  street  cleaning 
and  waste  disposal ;  Haskins  and  Sells'  report  on  munici- 
pal accounting ;  and  there  are  many  others. 

7.     State  Boards,  Officers  and  Commissions  Having 
Jurisdiction  over  Municipal  Affairs. 

In  some  states  there  are  state  boards,  officers,  and 
commissions  which  have  jurisdiction  over  certain  matters 
in  all  cities  of  the  state.  The  reports  and  publications 
of  these  are  therefore  of  value  in  municipal  reference 
work.  So,  too,  are  the  reports  of  special  investigations 
into  the  activities  of  a  particular  city  which  are  conducted 
at  times  under  state  supervision  and  direction.  The 
first  class  of  material  is  illustrated  by  the  state  control 
of  municipal  accounting  in  Ohio,  of  municipal  finance 
in  Massachusetts,  of  public  utilities  in  New  York,  and 
charities    and    education   in   many   states.      A    recent 


270  Law,  Legislative  Reference  and 

document  in  point  is  the  report  of  a  study  of  the  collection 
and  disposal  of  city  wastes  in  Ohio,  1910,  issued  as  a 
supplement  to  the  2oth  Annual  Report  of  the  Ohio 
State  Board  of  Health. 

Special  state  investigations  of  municipal  matters  are 
illustrated  by  those  conducted  by  the  New  York  State 
Assembly  into  the  question  of  municipal  ownership 
of  street  railways,  two  volumes,  1896,  the  Tilden  Com- 
mission's Report  on  Municipal  Governrtient*^  and  the 
Illinois  Senate  inquiry  into  the  Chicago  police  situation 
in  1897-8.  The  special  report  on  taxation  showing 
effects  of  separation  of  state,  county,  and  municipal 
revenues  and  tax  rates,  1911,  by  the  California  State 
Board  of  Equalization  and  Professor  John  A.  Fairlie's 
Town  and  County  Government  in  Illinois,  published  in 
1913,  are  both  recent  examples  of  this  latter  also. 

An  article  illustrating  the  practical  value  of  city  and 
state  documents  is  found  in  the  Journal  of  Home  Eco- 
nomics ior  February  1912,'*' by  C.  F.  Langworthy,  Chief  of 
the  Nutrition  Investigations  of  the  United  States  Depart- 
ment of  Agriculture  entitled  "State  and  Municipal 
Documents  as  Sources  of  Information  for  Institution 
Managers  and  other  Students  of  Home  Economics." 

8.     National  Bureaus. 

Several  of  the  bureaus  of  the  national  go\'ernment 
issue   valuable   data   bearing   on  municipal  questions.^" 

**  New  York  (State)  Legislature.  Tilden  Commission.  Report  on 
Municipal  Government,  1877.  (Reprinted  in  Municipal  Affairs 
Sept.,  1899,  3:  434-54.) 

«  p.  59-63. 

*"  Baker,  M.  N.,  "Federal  and  State  Collections  of  Municipal 
Statistics."  (In  Nat.  Miin.  Rev.  1:  446-49,  July,  1912);  see  also 
"How  the  P'ederal  (iovernment  now  Co-operates  with  Munici- 
palities" (in  American  City,  6:  408-10,  Jan.,  1912). 

Ernst  Meyer,  "The  National  Census  Bureau  and  our  Cities"  (in 
Amer.  Pol.  Sci.  Assn.  Proceedings,  7:  126-37,  1910). 


Municipal  Reference  Libraries  271 

Prominent  among  them  is  the  census  bureau,*^  with  its 
annual  volumes  of  statistics  of  cities,  mainly  financial, 
its  population  bulletins,  and  its  various  reports  on 
mortality,  manufactures,  industries,  telephones,  light, 
power,  water  supply,  sewerage,  and  street  railways.  The 
Bureau  of  Foreign  and  Domestic  Commerce  of  the 
Department  of  Commerce  publishes  the  Daily  Consular 
and  Trade  Reports,  which  present  a  large  amount  of 
municipal  information  from  foreign  countries,  up-to- 
date  and  not  easily  accessible  elsewhere.  This  informa- 
tion and  that  published  in  the  series  of  consular  reports 
issued  by  the  late  Bureau  of  Manufactures  on  municipal 
activities  abroad,  such  as  street  lighting,  municipal 
taxation,  markets  and  slaughter-houses,  and  municipal 
art  commissions,^-  was  secured  through  the  Department 
of  State  by  our  various  diplomatic  and  consular  ofificers. 
Of  the  vast  amount  of  valuable  information  distribu- 
ted by  the  Department  of  Agriculture  not  a  little  of  it  is 
applicable  to  urban  as  well  as  to  rural  communities.  In 
addition  to  the  Farmers'  Bulletins  listed  in  the  footnote,^^ 

^*  U.  S.  Census,  Bureau  of.  Guide  to  the  Exhibit  of  Municipal 
Statistics  of  the  United  States  Bureau  of  the  Census,  Department  of 
Commerce  and  Labor,  Washington,  D.  C,  at  the  International 
Municipal  Congress  and  Exposition  .  .  .  Chicago  .  .  .  September 
18-30,  1911.  36  p.  Wash.  1911.  (The  proceedings  of  this  con- 
gress have  been  published.) 

^^  Pub.  in  Special  Consular  Report  No.  42. 

'^  For  example,  among  comparatively  recent  Farmers'  Bulletins 
might  be  mentioned  the  following  as  applicable  to  the  city  as  well 
as  to  rural  needs: 

No.  413 :  Care  of  Milk  and  its  Use  in  the  Home. 

444:  Remedies  and  Preventives  against  Mosquitoes. 
449:  Rabies  or  Hydrophobia, 
450:  Some  Facts  about  Malaria. 
459:  House  Flies. 

478:  How  to  prevent  Typhoid  Fever. 
Many  others  will  be  found  in  the  long  list  of  nearly  GOO  bulletins 


979 


Law,  Legislative  Reference  and 


a  good  example  is  the  animal  industry  bureau's   study 
of  the  Milk  Supply  of  Chicago  and  Washington.^ 

The  Bureau  of  Standards'  Circular  no.  32  on  state  and 
municipal  regulations  regarding  illuminating  gas"  should 
be  mentioned. 

The  Public  Health  Service  of  the  Treasury  Department 
through  its  Division  of  Sanitary  Reports  and  Statistics 
issues  weekly  Public  Health  Reports  which  since  Janu- 
ary 1,  1910,  have  published  the  sanitary  ordinances  of 
cities  of  over  25,000  population  in  the  United  States, 
These  ordinances  have  recently  been  brought  together  ** 
in  one  bulletin  which  forms  one  of  the  few  examples 
there  are  of  compilations  of  city  ordinances  in  a  particu- 
lar field.  Another  important  publication  of  this  service 
was  Milk  and  its  Relation  to  the  Public  Health^''  issued  by 
the  Hygienic  Laboratory. 

And  it  should  not  be  forgotten  that  the  reports  of 
municipal  activities  of  Washington,  D.  C,  all  appear 
as  government  documents  because  of  the  unique  situa- 
tion of  the  capital  city.^^ 

"  U.  S.  —  Animal  Industry  Bureau.  Bulletin  no.  138.  40  p. 
Wash.  1911. 

"  U.  S.  —  Standards,  Bureau  of.  State  and  Municipal  Regulations 
for  the  Quality,  Distribution  and  Testing  of  Illuminating  Gas.  Ed.  1. 
133  p.     Wash.  1912.     (Cir.  No.  32.) 

**  U.  S.  —  PubHc  Health  and  Marine  Hospital  Service.  Municipal 
Ordinances,  Rules  arid  Regulations  pertaining  to  Public  Hygiene, 
adopted  from  January  1,  1910,  to  June  30,  1911,  by  Cities  of  the 
United  .States  having  a  population  of  over  25,000  in  1910.  244  p. 
Wash.  1912.     (Reprint  from  Pvblic  Health  Reports.  —  No.  70.) 

Takes  up  among  other  things  communicable  diseases,  vaccina- 
tion, spitting,  barber  shops,  street  cars,  lodging  houses,  natatoriums, 
laundries,  food  stuffs,  milk,  meat,  bakeries,  stables,  domestic  ani- 
mals, garbage,  nuisances,  etc.  Reprint  121  from  the  Weekly  Public 
Health  Reportshrings  this  compilation  to  Dec.  31,  1911. 

*'  834  p.     Wash.  1909. 

'^  A  document  in  point  is  the  Report  on  Assessment  and  Taxation 
of  Real  Estate  in  the  District  of  Columbia  issued  by  the  House  Com- 
mittee on  the  District  of  Columbia,  Washington,  1912,  Sixty-second 


Municipal  Reference  Libraries  273 

Not  only  do  these  administrative  offices  publish  mu- 
nicipal data  but  many  congressional  committees  have 
investigated  and  reported  upon  matters  which  are  en- 
tirely or  in  large  part  matters  of  local  administrative, 
social,  or  scientific  import.  Special  commissions  inquire 
into  similar  problems  as  the  excellent  reports  of  the 
President's  Homes  Commissions^  and  its  committees^" 
well  illustrate.  Indeed,  the  government  documents 
will  repay  examination  for  material  on  almost  any 
phase  of  municipal  endeavor. 

The  War  Department  also  on  occasion  enters  the 
field  of  municipal  activity.  Witness  its  emergency 
work  following  the  San  Francisco  earthquake  and  its 
policing  and  sanitation  of  Havana.  On  both  of  these 
subjects  reports®^  have  been  published. 

The  Bureau  of  Mines  has  given  careful  attention 
to  the  smoke  prevention  problem,  considering  existing 
preventive  agencies  for  both  locomotives  and  stationary 
power  plants,  types  of  coal,  furnaces,  etc.^' 

The  Bureau  of  Education's  Reports  and  Bulletins 
are  of  great  service  to  local  school  authorities  as  they 
discuss  all  phases  of  public  education  in  this  country 
and  abroad. 

Congress,  second  session,  H.  Rpt.  1215.  The  best  account  of  the 
government  pubHcations  relating  to  the  District  of  Columbia  will 
be  found  in  the  "Bibliographical  Note,"  p.  283-89  of  W.  F.  Dodd's 
Government  of  the  District  of  Columbia,  Washington,  1909. 

53  U.  S.  60th  Cong.  2d  Sess.  S.  Doc.  644  (in  serial  No.  5394). 

^°  Committee  on  Social  Betterment  Report,  281  p.  1908.  Also  in 
serial  number  5394,  p.  109-381. 

"  59th  Cong.  2d  Sess.  H.  Doc.  vol.  2  in  serial  No.  5105  and  56th 
Cong.  1st  Sess.  H.  Doc.  No.  2,  in  serial  No.  3901. 

^^  Bulletin 'i9. 


274  Law,  Legislative  Reference  and 

IL     Guides  to  this  Legal  and  Documentary  Material. 

In  ilie  ordinar\-  bibliography  of  municipal  affairs, 
slight  attention  is  paid  to  such  titles  as  fall  within  the 
scope  of  the  sections  on  legal  and  documentary  materials 
just  re^•ie^ved.  There  are,  of  course,  exceptions  to  this 
and  when  other  a\enues  of  research  do  not  lead  to  the 
desired  document  or  law,  the  general  bibliography  may 
be  called  into  ser\ice. 

Taking  up  the  materials  again  in  about  the  order 
originally  followed,  the  first  things  to  be  noted  are  local 
acts  of  the  legislature.  Many  states  publish  their  local 
acts  separately  and  an  occasional  index  to  a  series  of 
session  laws  will  cover  both  general  and  special  legis- 
lation. 

In  the  annual,  or  as  it  is  to  be,  biennial.  Review  of 
Legislation  of  the  separate  states,  one  of  the  Bulletins 
of  the  New  York  State  Library  which  make  up  its 
Yearbook  of  Legislation,  there  will  be  foimd  sections  on 
local  finance  and  municipal  fimctions  in  which  the  trend 
of  legislation  on  these  subjects  is  discussed.  The  annual 
Index  of  Legislation,  another  of  the  Bulletins,  will  enable 
one  to  locate  definitely  whatever  general  laws  on  munic- 
ipal matters  are  passed  each  year  and  some  of  the  more 
important  local  acts  for  all  the  states  of  the  Union.  The 
"Current  Municipal  Legislation"  department  of  the 
National  Municipal  Review  discusses  in  each  number 
recent  state  laws  as  well  as  ordinances,  and  the  "Current 
Legislation"  section  of  the  American  Political  Science 
Review  will  probably  continue  its  notes  on  municipal 
legislation  in  some  form  in  spite  of  the  legislation  depart- 
ment in  the  new  National  Municipal  Review  devoted 
entirely  to  municipal  activities. 


Municipal  Reference  Libraries  275 

There  is,  it  seems,  no  compilation  of  the  charters  of 
the  different  cities  in  America.  Excepting  Professor 
Beard's  Loose-leaf  Digest  of  Short  Ballot  Charters  which 
has  had  added  recently  texts  of  city  manager  charters,  and 
Professor  Hatton's  Digest,  the  latter  now  six  years  old, 
there  are  no  indexes  or  digests  of  a  comparative  nature 
for  any  considerable  number  of  charters. 

Most  discussions  of  city  charters,  charter-making, 
and  the  relation  between  city  and  state,  furnish,  however, 
a  certain  amount  of  comparative  data  to  which  reference 
should  be  made  in  this  connection.  The  most  extensive 
treatment  of  the  subject  will  be  found  in  Judge  Mc- 
Quillin's  Treatise  on  the  Law  of  Municipal  Corpora- 
tions,^^ chapter  nine,  entitled  "The  Municipal  Charter." 
The  charters  given  particular  attention  are  those  of 
St.  Louis,  Chicago,  San  Francisco,  Los  Angeles,  Greater 
New  York,  Galveston  and  Des  Moines.  A  list  of  refer- 
ences in  point  will  be  found  in  Munro's  Government 
of  American  Cities  at  the  end  of  the  chapter  on  "the 
City  and  the  State. "^^ 

More  often  than  not  charter  discussions  relate  to 
municipal  home  rule  charters,  and  for  this  phase  of  the 
subject,  Margaret  A.  Schaflfner's  Municipal  Home  Rule 
Charters  ^^  and  its  select  bibliography  will  be  found 
useful. 

"On  the  art  of  drafting  a  city  charter,"  says  Professor 
Munro,  "very  little  of  any  service  has  been  written," 
but  the  reader  should  not  neglect  Professor  Munro's 
own  discussion  of  this  subject  in  the  chapter  alluded 
to.^^ 

"  6  V.  Chi.,  1911-1913.     V.  1,  p.  717-75. 
"^  Munro,  op.  cit.,  p.  79. 

**  Wisconsin  Library  Commission  —  Legislative  Reference  Depart- 
ment.    Comparative  Legislation  Bulletin,  no.  18.     Dec,  1908. 
«  p.  76-79. 


276  Law,  Legislative  Reference  and 

"Model  charters"  have  been  suggested  and  the  Mu- 
nicipal Program  of  the  National  Municipal  League 
contains  a  "model"  Municipal  Corporations  act." 
President  James  has  discussed  the  question  in  The 
Elements  of  a  Model  Charter  for  American  Cities ^^  and 
there  has  been  issued  recently  by  the  Bureau  of  Municipal 
Research  and  Reference  of  the  University  of  Texas  a 
"Model  Charter  of  Texas  Cities"  (23  p.  Austin,  Feb. 
10,  1914),  by  his  son.  Professor  Herman  G.  James. 

Although  many  libraries  have  collections  of  separate 
charters  of  cities  or  have  the  city  charters  in  the  collected 
documents  of  a  number  of  cities,  useful  catalogues, 
bibliographies,  or  even  check-lists  of  these  charters  are 
rare  and  have  usually  appeared  only  in  connection  with 
and  as  a  part  of  the  general  lists  of  city  documents 
possessed  by  libraries;  or,  as  in  one  or  two  instances,  as 
parts  of  special  bibliographies. 

Compilations  of  the  ordinances  of  a  number  of  cities 
on  one  subject  are  far  from  plentiful.  The  list  below 
notes  most  of  them  along  with  one  or  two  other  items 
which  may  be  considered  aids  in  a  comparative  study 
of  this  class  of  materials. 

Building  Codes. 

American  School  of  Correspondence. 

Building  code:  a  Compilation  of  Building  Regula- 
tions covering  every  Phase  of  Municipal  Building 
Activity  with  special  Emphasis  on  Fire  Prevention 
Features.     128  p.     Chicago.     1913. 

*'  Deming,  Horace  E.  Government  of  American  Cities.  N.  Y. 
Putn.  1909:  p.  256-304,  also  in  Conf.  for  (rood  City  (iovernment. 
Proceedings,  v.  7:  224-49.  See  Prof.  Munro's  comment  on  this  in 
his  Got/.  ^  Am.  Cities,  p.  21  note. 

**  Conf.  for  Good  City  Government,  1895,  v.  2:  154-73. 


Municipal  Reference  Libraries  277 

Garbage  Collection. 

Regulations  for  Collecting  Garbage  at  the  House- 
holder's expense.  (In  Municipal  Engineering,  40: 
348-50.) 

Covers  Bay  City  (Michigan),  Duluth,  Grand  Rapids,  Omaha 
and  Salt  Lake. 

City  Planning. 

Nolen,  John, 

Replanning  small  cities.  218p.  N.Y.  Huebsch. 
1912. 

Contains  a  list  of  cities  in  which  replanning  is  being  con- 
sidered and  a  chapter  on  "Suggestive  City  Planning  Legisla- 
tion," p.  166-204. 

Curfew. 

Curfew    Ordinances    of    three    Wisconsin    cities. 
(In  The  Municipality  Nov.-Dec,  1912.     p.  79-80.) 
Chippewa  Falls,  Superior,  and  Platteville. 

Height  of  Buildings. 

Hartford    (Connecticut)    City    Plan    Commission. 
Fourth  Annual    Report.     1910-1911.     Hartford. 

1911. 

Contains  a  list  of  American  cities  which  have  or  have  not 
ordinances  limiting  the  height  of  buildings. 

Illuminating  Gas. 

U.  S.  Standards,  Bureau  of. 

State  and  Municipal  Regulations  for  the  Quality, 
Distribution  and  Testing  of  Illuminating  Gas. 
Ed.  1.     133  p.     Wash.     1912.     (Circular  No.  32.) 

Motion  Pictures. 

Laws  and  Legislation  (relating  to  Motion  Pictures). 
(In  Special  Libraries  3:  158,  September,  1912). 
A  short  bibliography,  not  texts  of  laws. 

Motion  Pictures. 

National  Board  of  Censorship  of   Motion  Pictures. 
Suggestions  for  a  Model  Ordinance  for  regulating 
Motion  Picture  Theatres.     15  p.     N.  Y.     1913. 


278  Law,  Legislative  Reference  and 

Municipal  Courts. 

Scott,  Henry  \V. 

Municipal  Courts  of  New  York  State;  Rochester, 
Syracuse,  Buffalo.  (In  his  The  Courts  of  the  State 
of  New  York,  X.  Y.,  1909.     p.  473-48L) 

Gives  the  texts  of  state  laws. 

Public  Health. 

U.  S.  Public  Health  and  Marine  Hospital  Service. 

Municipal  Ordinances,  Rules  and  Regulations 
pertaining  to  public  Hygiene,  adopted  January   1, 

1910,  to  June  30,  1911,  by  cities  of  the  United 
States  having  a  Population  of  over  25,000  in  1910. 
244  p.  Wash.  1912.  (Reprint  from  Public  Health 
Reports  No.  70.) 

Takes  up  among  other  important  matters  communicable 
diseases,  vaccination,  spitting,  barber  shops,  street  cars, 
lodging  houses,  natatoriums,  laundries,  food  stuffs,  milk, 
meat,  bakeries,  stables,  domestic  animals,  garbage,  nuisances, 
etc. 

Public  Health. 

U.  S.  Public  Health  and  Marine  Hospital  Service. 

Municipal  Ordinances,  Rules  and  Regulations 
pertaining  to  Public  Health  adopted  from  July  1, 

1911,  to  December  31,  1911,  by  Cities  of  the  United 
States  having  a  population  of  over  10,000  in  1910. 
226  p.     Wash.     1913. 

Compiled  by  John  VV.  Trask. 

Public  Health. 

U.  S.  Public  Health  Service. 

Organization,  Powers  and  Duties  of  Health 
Authorities,  an  Analysis  of  the  Laws  and  Regula- 
tions relating  thereto  in  force  in  the  L^nited  States 
by  J.  W\  Kerr  and   A.  A.  Moll.     452   p.     Wash. 

1912,  (Public  Health  Bulletin  No.  54,  August, 
1912.) 

Includes  a  discussion  of  local  boards  of  health  and  305 
pages  of  state  laws. 


Municipal  Reference  Libraries  279 

Recreation. 

Hanmer,  Lee  F. 

Recreation  Legislation.  68  p.  N.  Y.  1912(?) 
(Russell  Sage  Foundation:  Department  of  Child 
Hygiene.     Publication  No.  106). 

Typical  state  laws  and  city  ordinances. 

Sewage  Pollution. 

McLaughlin,  Allen  J. 

Sewage  Pollution  of  Interstate  and  International 

Waters.     (U.  S.  Hygienic  Laboratory,  Bulletin  83.) 

Studies  of  seventy-three  American  cities  affected  by  waters 
of  the  Great  Lakes. 

Sidewalks. 

Swisher,  B.  F. 

Sidewalks  and  Sidewalk  Ordinances.  (In  Ameri- 
can Municipalities  Mar.,  1913.     24:  174-81.) 

Discusses  Iowa  statutory  provisions,  decisions  of  the  Iowa 
Supreme  Court,  and  offers  a  model  sidewalk  ordinance. 

Smoke  Prevention. 

Flagg,  Samuel  B. 

City  Smoke  Ordinances  and  Smoke  Abatement. 
1912.     (U.  S.  Bureau  of  Mines.     Bulletin  49.) 

Covers  thirty-four  cities. 

Smoke  Prevention. 

Nolen,  John. 

Replanning  Reading,  Pa.,  1910. 

Contains  a  summary  of  smoke  prevention  ordinances  of 
the  cities  of  the  United  States. 

Street  Lighting. 

Bryant,  J.  M.  and  Hoke,  H.  G. 

Street  Lighting.  61  p.  (University  of  Illinois 
Bulletin  v.  9,  no.  8.) 

Aims  to  aid  in  framing  municipal  ordinances. 


280  Law,  Legislative  Reference  and 

Weights  and  Measures. 

U.  S.  Standards.  Bureau  of. 

State  and  National  Laws  concerning  the  Weights 
and  Measures  of  the  United  States.  Ed  2.  564  p. 
Wash.     1912. 

Information  regarding  current  ordinances  is  not  as 
accessible  as  might  be  though  the  last  few  years  have  seen 
a  decided  advance  in  this  regard.  The  National  Mu- 
nicipal Review  in  the  bibliographical  section  of  its 
"Department  of  Reports  and  Documents"  has  a  heading 
Charters  and  Ordinances  and  also  lists  ordinances  sep- 
arately under  subjects.  In  its  section  on  "Current 
Municipal  Legislation"  important  ordinances  are  re- 
viewed, sometimes  in  conjunction  with  a  survey  of 
local  state  legislation  and  at  others  as  a  separate  part 
of  that  section. "^^ 

Each  issue  of  the  weekly  Public  Health  Reports  con- 
tains the  text  of  various  types  of  public  health  ordinances 
and  Pacific  Municipalities  prints  each  month  a  list  of 
ordinances  it  has  received.  Through  the  daily  press  and 
certain  journals,  attention  is  occasionally  directed  to 
ordinances  of  more  than  local  interest.  It  is  to  be 
regretted  that  the  sources  for  this  kind  of  information 
are  so  scarce.  The  situation  seems  to  warrant  serious 
consideration. 

Information  regarding  model  ordinances  is  still  more 
difficult  to  locate,  and  there  is  room  for  a  publication 
comparable  to  the  Model  Bye-laws  series  of  the  British 
Local  Government  Board  though  the  National  Board 
of  Fire  Underwriters  has  published  a  series  of  "Suggested 
Ordinances"   including  such  subjects  as  explosives,   in- 

«'£.g.,  1:  277-78,  April,  1912. 


Municipal  Reference  Libraries  281 

spection  of  premises,  laundries,  manufacture  of  matches, 
moving  picture  machines,  theatres,  etc. 

Aids  in  getting  at  the  collected  documents  of  cities 
and  the  general  collections  of  separate  city  documents 
in  libraries  include  indexes  to  the  collected  city  docu- 
ments of  single  cities,  catalogues  and  check-lists  of  special 
collections,  and  certain  bibliographies  of  municipal  affairs 
that  concern  themselves  largely  with  matters  of  an 
administrative  or  legal  character.  The  important  aids 
of  these  several  types  make  but  a  short  list. 

The  indexes  to  collected  city  documents  are: 
Boston. 

An  Index  to  the  Documents  of  the  City  of  Boston  for 
the  Years  1834-1874.    (In  City  Documents  forl874,  vol.  1.) 

.     1834-1880.     (In  vol.  1,  1880.) 

.     1834-1886.     (In  vol.  1,  1886.) 

.     1834-1891,  with  an  Appendix  containing  a  List 

of  Publications  not  included  among  the  numbered  Docu- 
ments.    120  p.    8*^.   Boston.    Rockwell  &  Churchill,  1891. 

.     A  List    of  Documents  not  serially    numbered 

prior  to  A.D.  1891.     Appendix  to  Index  to  Documents. 
Boston.     1894. 

1834-1897,    with   an    Appendix    containing   a 


List  of  City  Publications  not  included  among  the  num- 
bered Documents.    142  p.     Boston.     1897. 

These  are  alphabetical  indexes  noting  the  year  and 
document  number  of  publications  indexed. 
Charleston. 

[Holmes.  G.  S.]  comp. 

Index  to  Year  Books.  .  .  1880-1901. 16  p.    n.  p.  n.d. 
A  title  a  line  index;  the  Charleston  "  Year  Books"  are  the  col- 
lected documents. 


282  Law,  Legislative  Reference  and 

In  this  connection  may  be  mentioned  the  following 
indexes  to  the  New  York  manuals: 

(Hufeland,  Otto)  comp. 

Historical  Index  to  the  Manuals  of  the  City  of 
New  York.  ("Valentine's  Manuals").  1841-1870 
(by  O.  H.).     95  p.     F.  P.  Harper,  N.  Y.     1900. 

A  title  a  line  index. 
Society  of  Iconophiles. 

Index  to    Illustrations  in  Manuals  of  the  Cor- 
poration.    107  p.     N.  Y.     1906. 

Among  the  printed  catalogues  of  special  libraries  on 
municipal  matters,  in  this  country  the  Catalogue  of 
the  Chicago  Municipal  Library""^  is  easily  first  in  the 
amount  of  legal  and  documentary  material  listed  and 
notes  a  large  number  of  valuable  publications  not  en- 
tered in  other  printed  sources.  Unfortunately  the  style 
of  printing  is  not  all  that  could  be  desired  from  the 
standpoint  of  ready  reference,  for  too  often  author 
entries  are  arranged  alphabetically  under  a  specific 
subject  without  sufficient  indication  that  they  are  a 
separate  group  under  one  subject,  and  not  primary  en- 
tries in  the  dictionary  catalogue  itself.  More  indenting 
and  better  spacing  would  have  remedied  this  and  enabled 
the  eye  to  take  in  the  page  more  readily.  Another  title 
to  be  mentioned  is: 

Providence  City  Librar>'^  in  the  Mayor's  office. 
Catalogue.     Providence,  1886. 
"...  contains  complete  sets  of  the  documents  of  most 

of  the  New  England,  besides  of  the  other  principal  cities  of 

the  country." 

An  important  German  catalogue  is  the  Berlin  Statisti- 

schen  Amts  Bibliotek  KatalogJ^ 

""*  Compiled  and  issued  by  the  Bureau  of  Statistics  and  Municipal 
Library,  190S,  149  p. 

"  684  p.  Berl.,  1901.     See  note  37,  p.  259. 


Municipal  Reference  Libraries  283 

The  largest  collections  of  municipal  documents  in  the 
United  States  are  in  the  New  York  Public  Library  and 
the  Library  of  Congress.  A  check-list  of  those  in  the 
former  was  published  in  the  library's  Bulletin  under  the 
title:  List  of  City  Charters,  Ordinances,  and  Collected  Doc- 
uments in  the  New  York  Public  Library.  The  first  in- 
stallment of  the  list  appeared  in  the  September,  1912, 
Bulletin^  It  was  continued  in  the  November  and  sub- 
sequent issues. 

After  completion  in  the  Bulletin  the  separate  parts 
were  collected  and,  with  a  supplement,  made  into  a 
paper  bound  volume  under  the  title:  List  of  Works  Re- 
lating to  City  Charters,  Ordinances,  and  Collected  Docu- 
ments, 1913.''^  The  primary  arrangement  of  the  list  is 
alphabetically  by  cities. 

A  shorter  list,  and  one  now  largely  superseded  by  the 
New  York  list,  was  published  by  Cornell  University 
Library  in  its  Bulletin  July  1886  ^^  and  April  1887^* 
under  the  title:  Municipal  Documents  of  American  Cities. 
This,  too,  is  arranged  by  cities,  alphabetically. 

Another  title  appropriate  to  this  list  is  the  Connecti- 
cut State  Library's  list  of  Connecticut  Town  and  Munici- 
pal Publications."^'" 

In  addition  to  these  check-lists  of  all  the  collected  and 
separate  documents  of  several  cities  as  found  in  single 
libraries,  there  are  a  few  lists  purporting  to  cover  all  or 
nearly  all  the  documents  of  a  single  city.  As  examples 
of  these,  there  is,  first,  the  Check-list  of  general  Municipal 
Documents  of  Brooklyn  in  the  New  York  Public  Library, 

"  Vol.  16:  631-710. 

'3  383  p. 

'^  Vol.  2:  3^-42,  61-2. 

'*  Hartford,  1909.    Bui.  No.  3. 


284  Law,  Legislative  Reference  and 

31  December,  190L"  In  this,  the  documents  are  listed 
chronolo^cally  under  the  headings:  Charter,  N.  Y.  State 
Laws,  General  City  Documents,  Mayors'  Messages, 
Common  Council  {Documents,  Manual,  Proceedings, 
Rules),  and  Ordinances.  According  to  Miss  Hasse, 
Chief  of  the  Documents  Department  of  the  library, 
the  list  is  incomplete. 

The  same  volume  of  the  Bulletin  contains  separate 
lists  of  works  in  the  New^  York  Public  Library  on  Brook- 
lyn Cemeteries,  Charities,  Churches,  Clubs,  Directories, 
Finance  and  Commerce,  Fire  Department,  Health, 
Histor>',  Libraries,  Maps,  Missions,  Newspapers,  Parks, 
Schools,  and  Water  Supply. 

Another  example  is  the  New  York  City  list  known  as 
a  Check-list  of  general  Municipal  Documents  of  New  York 
City,  and  of  New  York  State  Documents,  and  other  Papers 
relating  to  the  City,  in  the  New  York  Public  Library, 
December  31,  1900.''^  In  this,  entries  are  chronologically 
arranged  under  the  following  headings:  Charters; 
Aldermen  (1831-1897)  —  Documents,  Proceedings; 
Aldermen  and  Assistants — Proceedings;  Council  Pro- 
ceedings; Minutes  of  the  Board  of  Estimate  and  Appor- 
tionment; Proceedings  of  the  Municipal  Assembly; 
Ordinances;  and  Documents  oi  the  Board  of  Supervisors. 
The  same  volume  of  the  Bulletin  contains  lists  of 
other  material  in  the  librar>'  relating  to  New  York 
City  as  follows:  Almanacs,  Bridges,  Charities,  Churches, 
Clubs,  Colleges,  Commercial  and  Financial  History, 
Directories,  Docks,  Ferries,  Fire  Department,  Guide 
BfK)ks,  Harbor,  Health  and  Vital  Statistics,  History, 
Hospitals,  Libraries,  Maps,  Markets,  Newspapers,  Parks 

'•  In  N.  Y.  P.  I..  But.  6:  12-19;  Jan.,  1902. 
"  In  .\.  Y.  I'.  L.  But.  5:  5-19;  Jan.,  1901. 


Municipal  Reference  Libraries  285 

and  Monuments,  Real  Estate,  Schools,  Social  History, 
Street  Railways,  Streets,  Views,  Water  Front,  and  Water 
Supply. 

Another  library  publication  on  this  subject  and  limited 
to  a  single  city  is  the  tentative  list  of  Official  Documents 
of  the  City  of  Pittsburgh,  February,  1903,  issued  by  the 
Carnegie  Library  of  Pittsburgh  as  a  sixteen-page  separate. 
When  issued,  many  of  the  items  noted  were  not  in  the 
library.  After  ordinances  and  council  proceedings, 
chronologically  entered,  the  reports  and  other  publica- 
tions of  the  separate  officers  and  departments  are  listed 
alphabetically  by  department,  then  chronologically. 

Another  type  of  list  is  that  limited  to  a  single  subject, 
not  a  single  city.  Such  is  the  Check-list  of  American 
Municipal  Official  documents  relating  to  Finance  in  the 
New  York  Public  Library?^  This  includes  the  financial 
reports  of  cities  having  a  population  of  50,000  or  over 
in  1900,  and  a  selected  number  of  other  cities.  Entries 
are  alphabetically  arranged  according  to  cities.  The 
list  is  one  of  a  series  which  appeared  in  the  Bulletin  on 
official  financial  documents.  The  other  separate  lists 
were  of  foreign, ^^  United  States  federal, ««  and  United 
States  state  ^^  documents. 

A  check-list  of  current  municipal  documents  is  fur- 
nished by  the  "Recent  Municipal  Documents"  depart- 
ment of  the  National  Municipal  Review  in  charge  of 
Miss  Hasse.  This  list  covers  administration  in  general, 
including  council  proceedings,  official  bulletins,  collected 
documents  (alphabetically  by  cities)  and  following  these, 

'^Bul.  6:315-27. 
"5m/.  5:  457-86. 
«0  5m/.  6:  287-92. 
"5«/.  6:293-314. 


286  Law,  Legislative  Reference  and 

lists  the  separate  documents  alphabetically  by  subjects. 
Foreign  as  well  as  American  cities  are  included.  This 
check-list  began  in  the  July,  1912,  number  of  the  Review, 
and  was  continued  in  October.  It  replaced  a  similar 
list  that  had  been  started  in  the  Bulletin  of  the  New  York 
Public  Library  in  its  issues  for  January  and  March,  1912. 
This  latter  was  resumed  by  the  Bulletin  later  on  during 
1913.  Beginning  January,  1913,  The  National  Muni- 
cipal Review  list  was  enlarged  in  scope  and  became  a 
selected  bibliography  of  material  including  documents, 
reports,  books,  pamphlets,  and  magazine  articles  on 
municipal  affairs. ^^ 

Most  bibliographies  of  municipal  affairs  include  few 
official  documents.  But,  although  bibliographies  are 
taken  up  later,  there  are  some  which  pay  particular 
attention  to  this  form  of  publication  and  consequently 
may  properly  be  noticed  here  in  the  section  of  guides 
to  documentary  material.  Among  these  are  the  City 
Club  of  Chicago's Li.y/  of  Titles  on  Municipal  Government 
with  Special  Reference  to  City  Charters  and  to  Local  Condi- 
tions, compiled  by  Charles  Harvey  Brown  in  1906,  the 
Grand  Rapids  Public  Library  list  of  Some  Books  and 
Magazine  articles  dealing  with  Charters  for  Cities  together 
with  a  List  (about  100)  of  Cities  whose  Charters  are  on  file 
in  the  Library, ^^  and  the  Chicago  Public  Library  Check- 
list of  Books  and  Pamphlets  on  Municipal  Governments^ 
The  Civics  Bibliography  for  Greater  New  York,  edited 
by    Reynolds^   and    Charles  K.    Bolton's  Some   Works 

"  The  Bibliography  in  the  National  Municipal  Review  will  be 
compiled  hereafter  by  the  Chicago  School  of  Civics  and  Philanthropy 
and  the  St.  Louis  Municipal  Reference  Library.  (.Notice  in  A'a^. 
Mun.  Rev.  2:  747,  Oct.,  1913). 

"  In  lis  Bulletin,  September,  1910,  p.  124-27. 

•*44p.     1911. 

•*  See  p.  :{lf),  infra. 


Municipal  Reference  Libraries  287 

relating  to  Brookline,  Mass.,  from  its  Settlement  to  the  Year 
1900,  are  additional  illustrations  of  bibliographies  which 
contain  many  references  to  local  municipal  documents. 

Miss  Adelaide  R.  Hasse's  Index  of  Economic  Material 
in  the  Documents  of  the  States  of  the  United  States,^^ 
being  prepared  in  separate  volumes  for  each  state  for 
the  Carnegie  Institution  at  Washington,  is  a  compre- 
hensive key  to  information  in  state  documents  on  mu- 
nicipal activities.  The  Monthly  List  of  State  Publications , 
ssued  since  January,  1910,  by  the  Documents  Division 
of  the  Library  of  Congress,  furnishes  information  regard- 
ing current  state  documents  of  this  nature.  They  are 
also  noted  in  the  "Department  of  Reports"  of  the 
National  Municipal  Review  conducted  by  Professor  John 
A.  Fairlie.  The  Review  also  prints  occasionally  lists  of 
legislative  investigations  on  municipal  matters  either 
made  or  authorized  ^'^  and  this  information  is  currently 
furnished  by  the  Bulletin  of  the  Public  Affairs  Informa- 
tion Service.  The  state  documents  of  New  York  relating 
to  New  York  City  were  included  in  the  list  of  docu- 
mentary material  for  the  city  noted  above  as  published 
in  the Bulletin^^  of  the  New  York  Public  Library. 

Decisions  of  general  interest  on  municipal  subjects 
are  available  of  course  in  the  regular  court  reports,  but 
in  addition  have  been  compiled  in  several  instances  into 
case  books. ^^  They  are  also  taken  up  in  the  text  books 
on  municipal  law,  mentioned  later.  Current  decisions  are 
noted  in  the  National  Municipal  Review,  Special  Libraries, 
and  less  fully  in  the  other  journals  interested  in  munic- 
ipal affairs. 

*'  Now  issued  for  11  states;   see  p.  126,  infra. 
8^  Those  authorized  1911  noted  in  v.  1:  282,  April,  1912.     Those 
authorized  1912  noted  in  v.  1:  712-13,  Oct.,  1912. 

88  Jan.,  1901. 

89  See  p.  291-92. 


288  Law,  Legislative  Reference  and 

The  indexes^  to  the  government  documents  will  reveal 
federal  publications  on  matters  of  municipal  interest 
and  the  Monthly  Catalogue  issued  by  the  Superintendent 
of  Documents  at  Washington  lists  currently  all  addi- 
tions to  this  class. 

The   general    magazine   indexes,    too,    are    indirectly 
valuable  in  this  connection  for  they  index  many  maga- 
zines which  comment  upon  and  review  important  official 
publications, 
(b)     Books. 

The  books  for  a  municipal  reference  library  should  be 
selected  with  care  and  discrimination  and  with  a  view 
to  definite  use  on  specific  problems.  Though  limited, 
the  field  is  large  and  the  literature  extensive.  The 
bibliographies  in  section  (h)  present  a  comprehensive 
view  of  this  literature  and  simply  a  few  representative 
titles,  illustrating  types,  will  be  noticed. 

1.     Treatises  on  Municipal  Government  and  Adminis- 
tration,    e.g. 

(a)     General. 

Allen.  William  Har\ey. 

Efficient  Democracy.  346  p.    N.  Y.    Dodd,  Mead 
&  Co.     1907. 
Doming,  Horace  Edward. 

The  Go\ernment  of  American  Cities.    323  p.   N.  Y. 
Putnam.     1909. 
Fairlie,  John  Archibald. 

Fssavs  in  Municipal  Administration.     374  p.     N. 
Y.     Macm.     1908. 

Local  Government  in  Counties,  Towns  and  Cities. 

289  p.     N.  Y.     Cent.  Co.     1906. 

Municipal  Administration.    448  p.    X.Y.   Macm. 


1901. 

•"Seep.  11()-12. 


Municipal  Reference  Libraries  289 

Goodnow,  Frank  Johnson. 

City  Government  in  the  United  States.     315  p. 
N.  Y.,  Cent.     1906. 

Municipal  Government.     401  p.     N.  Y.     Cent. 


1909. 


Municipal  Home  Rule.     283  p.     N.  Y.     Macm. 

1897. 

Munro,  William  Bennett. 

Government  of  European  Cities.     409  p.     N.  Y. 
Macm.     1909. 

Government  of  American  Cities.     401  p.     N.  Y. 


Macm.     1912. 

Redlich,  Josef. 

Local  Government  in  England.   Ed.  with  Additions 
by  Francis  W.  Hirst.     2  v.     Lond.     Macm.     1903. 

"The  Standard  Work  on  the  Structure  of  English  Govern- 
ment." 

Rowe,  Leo  Staunton. 

Problems  of  Citv  Government.  358  p.     N.  Y.    D. 
Appleton  &  Co.    'l907. 

Wilcox,  Delos  F. 

The  American  Citv:    a  Problem  in  Democracy. 
423  p.    N.  Y.     Macm'.    1904. 

(b)     Individual  Cities. 

There  are  numerous  accounts  of  the  municipal  admin- 
istration of  single  cities,  a  brief  list  of  which  will  be  found 
in  the  Check-list  of  Books  and  Pamphlets  on  Municipal 
Government  issued  by  the  Chicago  Public  Library  in 
1911.^^  Examples  of  this  are  furnished  by  President 
Edmund  J.  James'  Municipal  Administration  in  Ger- 
many as  seen  in  the  Government  of  a  typical  Prussian 
City,   Halle  a/S,^-  and  Professor  Walter  F.  Dodd's  The 

"p.  9-10. 

"  University  of  Chicago  Press,  1901. 


290  Law,  Legislative  Reference  and 

Government  of  the  District  of  Columbia,  a  Study  in  Federal 
and  Municipal  Administration P 

Lender  the  title,  "Municipal  Organization  in  Latin 
America,"  the  Pan-American  L^nion  in  its  Bulletin  has 
published  a  number  of  comprehensive  articles,  most  of 
which  have  been  reprinted  and  may  be  obtained  separ- 
ately. Among  the  cities  taken  up  are  Buenos  Aires, 
Rio  de  Janeiro,  Santiago  de  Chile,  Havana  (Cuba), 
Mexico  City,  and  Lima,  Peru.  This  Bulletin  is  issued 
from  the  Government  Printing  Office.  Washington,  D.  C. 

(c)     Special  Types  of  Municipal  Government. 
e.g.,  Commission  Government. 
Books  on  a  special  type  of  municipal  government  are 
illustrated    in    the   following   brief   list   on   Commission 
Government  for  cities. 

Beard,  Charles  Austin,  ed. 

Loose-leaf  Digest  of  Short  Ballot  Charters:  A 
Documentary  History  of  the  Commission  Form  of 
Government.  X.  Y.  Short  Ballot  Organization, 
1912. 

Contains  bibliography,  p.  81001,  sq. 

Bradford,  Ernest  Smith. 

Commission    Government    in    American    Cities. 
359  p.     X.  Y.     Macm.     1911. 
Bibliography,  p.  339-53. 

Bru^re,  Henry. 

The  Xew  City  Government:  a  Discussion  of 
Municipal  Administration,  Based  on  a  Survey  of 
ten  Commission  Governed  Cities.  438  p.  X.  Y. 
Appleton.     1912. 

Hamilton,  John  Judson. 

The  Dethronement  of  the  City  Boss.  285  p. 
X.  Y.     Funk  &  Wagnalls.     1910. 

"  Washington,  D.  C,  John  Byrne  &  Co.,  1909. 


Municipal  Reference  Libraries  291 

Kind,  Clyde  Lyndon,  ed. 

Commission  Government  in  American  Cities. 
Phil.  300  p.  1912.  (Annals  of  the  Amer.  Acad, 
of  Pol.  and  Social  Science,  Nov.,  1911.) 

Considers  in  detail  the  underlying  principles,  the  problem, 
the  objections,  the  limitations,  and  the  results. 

Robbins,  Edwin  Clyde. 

Selected  Articles  on  the  Commission  Plan  of 
Municipal  Government.  Ed.  2.  178  p.  Minne- 
apolis.    Wilson.     1910. 

Woodruff,  Clinton  Rogers,  ed. 

City  Government  by  Commission.  381  p.  N.  Y. 
Apple  ton.     1911. 

Bibliography,  p.  355-69. 

2.     Treatises  on  Municipal  Corporation  Law. 

Abbot,  H.  S. 

Treatise  on  the  Law  of  Municipal  Corporations. 
3  V.     St.  Paul.     1905-06. 

Beale,  Joseph  Henry. 

Selection  of  Cases  on  Municipal  Corporations. 
686  p.     Cambridge.     1911. 

Dillon,  John  Forrest. 

Commentaries  on  the  Law  of  Municipal  Corpora- 
tions.    5v.    Ed.  5.     Boston.    Little,  Brown.     1911. 
A  standard  authority. 

Elliot,  Charles  B. 

Principles  of  the  Law  of  Public  Corporations. 
Chicago.     1898. 

Garland,  James  Smith. 

New  England  Town  Law,  a  Digest  of  Statutes  and 
Decisions  Concerning  Town  Officers.  825  p.  Bos- 
ton.    Boston  Book  Co.     1906. 

Horr,  Norton  Townshend  and  Bemis,  Alton  A. 

A  Treatise  on  the  Power  to  Enact,  Passage,  Validity 
and  Enforcement  of  Municipal  Police  Ordinances. 
312  p.     Cincinnati.     R.  Clarke.     1887. 


292  Law,  Legislative  Reference  and 

Macv.  John  Edward. 

Selection  of  Cases  on  Municipal  or  Public  Corpora- 
tions.    503  p.     Boston.     Little,  Brown.     191 L 

MacMorran,  Alexander  &  MacMorran,  Kenneth  M. 

Local  Government  1908-1909,  Comprising  Stat- 
utes, Orders,  Forms,  Cases  and  Decisions  of  the  Local 
Government  Board.    1123+54   p.   London.     1910. 

Supplements  Scholefield's  Encyclopedia  and  includes  Poor 
Law  subjects;  dates  from  Easter,  1908,  through  1909. 

for  1910. 

McQuillin,  Eugene. 

A  Treatise  on  the  Law  of  Municipal  Corporations. 
6v.     Chicago.     1911-1912. 
A  standard  authority. 

A  Treatise  on  the  Law  of  Municipal  Ordinances. 

Chicago.     Callaghan.     1031  p.     1904. 

Included  in  the  preceding  entry. 

Morgand,  Leon. 

La  \jo\  Municipals     Ed.  8.     Paris.     1912. 

Rawlinson,  Sir  Christopher. 

Municipal  Corporations  Acts  and  other  Enact- 
ments Relating  to  the  Powers  and  Duties  of  Municipal 
Corporations  thereunder  with  Notes  and  References 
to  the  Cases.  Ed.  9.  106  p.  London.  Sweet  & 
Marwell.     1903. 

Scholefield,  Joshua,  ed. 

Encvlcopsedia  of  Local  Government  Law.  7  v. 
London.     1905-1908. 

Excludes  statutes  relating  only  to  the  Metropolis  and  Poor 
Laws. 

Smith,  Jeremiah. 

Cases  on  Selected  Topics  in  the  Law  of  Municipal 
Corporations.     260  p.     Cambridge  (Mass.).      1898. 

Smith,  John  Wilson. 

Commentaries  on  the  Modern  Law  of  Municipal 
Corporations.  2  v.  Indianapolis.  Bower-Merrill. 
1903. 


Municipal  Reference  Libraries  293 

Spencer,  Frederick  Herbert. 

Municipal  Origins  —  an  Account  of  Private  Bill 
Legislation  relating  to  Local  Government,  1740-1835; 
with  a  Chapter  on  Private  Bill  Procedure.     333  p. 
Lond.     Constance.     1911. 
Wood,  A.  E.  and  Johnson,  T.  R. 

Encyclopaedia  of  Local  Government  Board  Re- 
quirements and  Practice;  including  a  Summary  of 
the  Statutory  Provisions  governing  each  Matter 
dealt  with.     2  v.     London.     Butterworth.     1908. 

3.     Treatises  on  Special  Municipal  Topics. 

Titles  falling  under  this  head  are  so  numerous  and  so 
varied  that  an  adequate  idea  of  their  number  and  variety 
can  be  gained  only  from  a  survey  of  bibliographies.  The 
few  selected  titles  are  representative  of  but  correspond- 
ingly few  types. 

Health. 

Godfrey,  Hollis. 

The  Health  of  the  City.  372  p.  Boston.  Hough- 
ton.    1910. 

Housing. 

Veiller,  Lawrence. 

Housing  Reform,  a  Handbook  for  Practical  Use 
in   American    Cities.     213   p.     N.    Y.    Char.    Pub 
Comm.     1910. 

Police. 

Fuld,  Leonhard  Y. 

Police  Administration ;  a  Critical  Study  of  Police 
Organizations  in  the  United  States  and  Abroad. 
N.  Y.     Putnam.     1909. 

Public  Utilities. 

Floy,  Henry. 

Valuation  of  Public  Utility  Properties.  390  p. 
N.  Y.     McGraw,  Hill.     1912. 


294  Law.  Legislative  Reference  and 

Ivins.  William  M.  and  Mason,  Herbert  D. 

Control  of  Public  I'tilities.  N.  Y.  Baker,  Voorhis 
&  Co.     1908. 

Joyce.  Joseph  Ashbury. 

A  Treatise  on  Franchises.  1130  p.  N.  Y.  Banks 
Law  Pub.  Co.     1909. 

King.  Clvde  L. 

The  Histon,'  of  the  Government  of  Deliver  with 
Special  Reference  to  its  Relations  with  Public  Service 
Corporations.     322  p.     Denver.     Fisher  Book  Co. 
1911. 
King,  Clvde  L.,  ed. 

Regulation  of  Municipal  Utilities.  404  p.  N.  Y. 
Appleton,  1912. 

Whitten.  Robert  Harvey. 

Valuation  of  Public  Service  Corporations.     798  p. 
N.  Y.     Banks  Law  Pub.  Co.     1912. 
Wilcox,  Delos  Franklin. 

Municipal  Franchises.  2  v.  1910.  (v.  1:  Roches- 
ter, Gervaise;  v.  2:  N.  Y.  Engineering  News.) 

Roads. 

Frost,  Harwood. 

The  Art  of  Roadmaking.  544  p.  N.  Y.  The 
Author.     1910. 

Sewers. 

Folwell,  Amary  Prescott. 

Sewerage;  the  Designing,  Construction  and  Main- 
tenance of  Sewage  Systems.  506  p.  N.  Y.  J. 
Wiley.     1910. 

4.     Municipal  Yearbooks. 

The  term  "Yearbook"  is  misleading  and  ambiguous. 
The  Charleston,  South  Carolina,  Year  Book  is  a  volume 
i)i  the  collected  annual  reports  of  the  city  departments. 
The  meaning  is  generally,  however,  an  annual  summary 
or  survey  of  activities,  often  largely  statistical  in  nature. 


Municipal  Reference  Libraries  295 

The  annual  reports  of  state  boards  controlling  munici- 
pal finance  or  some  other  municipal  subject  might  be 
considered  under  the  term  yearbooks  though  limited  in 
scope  and  limited  geographically.^^ 

United  States. 

American  Yearbook,  19 10-. 

(Has  a  chapter   on   municipal   government   and   discusses 
municipal  problems  in  other  chapters.) 

League  of  American  Municipalities. 

The  Book  of  American  Municipalities.     1906-10. 
4  vols. 

Municipal  Yearbook  1902.     (N.  Y.  Engineering  News 
Co.) 

National    Municipal    League  —  Conference   for  Good 
City  Government. 

Proceedings.     1894-1911. 

U.  S.  —  Census,  Bureau  of. 

Statistics  of  Cities  having  a  Population  of  over 
30,000.     1905-. 

Great  Britain. 

Municipal  Yearbook  of  the  United  Kingdom.     1897-. 
London.     Municipal  Journal,  Ltd. 

Canada. 

Union  of  Canadian  MunicipaHties. 
Official  yearbook.     1902-. 

Germany. 

Kommunales  Jahrbuch.     (Jena).     1908-. 

Statistisches  Jahrbuch  deutschen  Stadte.    v.  1-,  1890-. 
Breslau. 

»^  Cf.  Baker,  M.  N.,  "Five  British  Municipal  Annuals."  (In  Nat. 
Mun.  Rev.  1:  444-46,  July,  1912.) 


oiKj  I^w,  Legislative  Reference  and 

France. 

Fiance-Interieur.  Ministere  d'. 

La  situation  financiere  des  communes  de  France 
et  d'Algerie.    Melun.     1888-. 

Austria. 

Oesterreichisches  Stadtebuch   (Austria-Statistical 
Central  Commission). 

Twenty-two  cities  covered  by  detailed  statistics. 

Italy. 

Annuario   statistic©   delle  Citt^    italiane,    v.    1-, 
1906-.    Florence. 

Individual  cities  have  their  municipal  yearbooks  as 
well  as  do  countries  and  a  number  of  these  will  be  found 
mentioned  in  the  Bibliography  of  Economics  for  1909  *^ 
under  the  heading,  "Statistical  Compilations."  Excel- 
lent examples  are  furnished  by  the  Statistisches  Jahrbuch 
der  Stadt  Berlin,  volume  one  of  which  appeared  in  1874, 
the  Annuaire  administratif,  1909  to  date,  and  the  Annu- 
aire  statistigue  de  la  Ville,  both  for  Paris,  France. 

New  York,  long  lagging  behind  the  other  large  cities 
of  the  world  in  this  respect,  has  at  last  realized  her  posi- 
tion and  begins  with  1913  the  Municipal  Year  Book  of 
the  City  of  New  York,  which  it  is  hoped  may  be  the  first 
of  a  long  and  valuable  set  of  this  kind.  Similarly  Pitts- 
burgh in  1913  began  with  its  first  Municipal  Year  Book. 

•*  A  cumulation  of  bibliography  appearing  in  the  Journal  of 
Political  Exonomy  from  February,  1909,  to  January,  1910,  inclusive, 
edited  by  the  Faculty  of  the  Department  of  Political  Economy  of  the 
University  of  Chicago.  282  p.  L'niv.  of  Chicago  Press.  1910. 
(See  p.  270-71). 


Municipal  Reference  Libraries  297 

(c)     Serial   Publications:     Periodicals,   Soci- 
ety Proceedings,  etc. 

Serial  publications  pertaining  in  whole  or  in  part  or  in 
occasional  issues  to  municipjal  affairs,  including  regular 
periodicals,  society  proceedings,  and  municipal  reform 
or  other  association  organs  practically  defy  classifica- 
tion, at  least  what  is  sometimes  called  "close"  classifica- 
tion. The  majority  of  these  publications  are  the  organs 
of  some  municipal  reform  organization  —  a  fact  wliich 
may  or  may  not  be  apparent  —  and  nearly  a  dozen 
distinct  types  of  these  are  discussed  by  Professor  Munro 
in  his  new  book  where  he  considers  "Municipal  Reform 
and  Reformers."^*  There  are  first,  those  with  general 
programs  of  reform  and  these  may  be  either  national  or 
state.  Then  follow  organizations  with  special  pro- 
grams, then  the  official  and  professional,  and,  lastly, 
five  groups  of  local  organizations  —  political,  fusion,  non- 
partisan, non-political,  and  miscellaneous. 

Dr.  Charles  C.  Williamson,  in  discussing  only  the 
private  publications  in  the  United  States  which  deal 
with  municipal  problems,  excluding  annuals  and  the 
publications  of  cities  themselves,  finds  eight  groups  a 
convenient  classification." 

A  third  list  of  municipal  periodical  publications  will 
be  found  in  the  valuable  report  to  the  National  Municipal 
League  made  by  Mr.  William  B.  Howland  and  published 
in  the  Proceedings  of  the  Cincinnati  Conference  for  Good 
City  Government.^^     In  this  report  the  ten  groups  are: 

•*  Munro,  William  Bennett,  The  Government  of  American  Cities, 
Macm.     1912.     p.  358-85. 

"'Williamson,  Charles  C,  "Periodical  l'ui)lications  on  Munici- 
pal Affairs"  (in  Nat.  Mun.  Rev.  1:  406-10,  July,  1912.) 

»«  1909.  p.  12-16;  printed  also  in  Clinton  Rogers  Woodruff's, 
"Municipal  Periodical  Literature,"  Lib.  Jr.  36:  183-84. 


298  Law,  Legislative  Reference  and 

L  Representing  organizations  of  municipal  officials; 
2.  Publications  issued  by  cities;  3.  General  publications; 
4.  Municipal  public  service  publications;  5.  Publica- 
tions issued  by  civic  bodies;  6.  Taxpayers'  publications; 
7.  Issued  by  commercial  bodies;  8.  Canadian  publica- 
tions;  9.    Foreign  publications;    10.    Annuals. 

The  main  difficulties  to  really  satisfactory  classifica- 
tion are  that  the  publications  overlap  in  purpose  and, 
furthermore,  do  not  limit  their  contents  to  material 
bearing  specificially  on  the  declared  purpose,  whatever 
it  may  be.  Professor  Munro  says  "Many  reform  organi- 
zations present  the  curious  spectacle  of  a  secretary  who 
spends  most  of  his  time  gathering  funds  for  the  associa- 
tion and  then  uses  most  of  these  funds  to  pay  for  the 
time  he  has  spent  in  gathering  them."  In  view  of  this 
characterization  perhaps  much  study  spent  on  classifi- 
cation is  not  justified,  but  a  contribution  to  the  solution 
of  the  problem  is  presented  in  the  following  arrangement 
of  illustrative  titles.^^ 
I.     National. 

1.     General  Municipal  Periodicals. 

American  City,  v.  1-,  Sept.,  1909-.    N.  Y. 

American  Municipalities,^""  Marshalltown,  Iowa. 

Canadian  Municipal  Journal,  v.  1-,  1905-.    Mon- 
treal. 
Official  organ  of  the  Union  of  Canadian  Municipalities. 

Municipal  Affairs,  v.  1-6,  1897-1902.     N.  Y. 
No  more  published. 

*'  For  brief  statements  of  the  scope,  purpose,  and  utility  of  many 
of  these  publications  the  reader  is  referred  to  Dr.  Williamson's  article 
just  noted. 

•*"  The  organ  of  the  League  of  American  Municipalities  and  the 
separate  state  leagues  of  Iowa,  Nebraska,  and  Kansas  municipalities; 
formerly  called  City  Ilall- Midland  Municipalities,  an  outgrowth  of 
City  Hall  and  Midland  Municipalities. 


Municipal  Reference  Libraries  299 

Municipal  Journal,  v.  1-,  1893-.     London. 
Municipal  Journal,  v.  1-,  1881-.     N.  Y. 
National  Municipal  Review,  v.  1-,  19 12-.    Balti- 
more. 

First  in  general  importance. 
Revue  communale,  v.  1-.     Paris,  France. 
(Der)  Stadtebau,  v.  1-,  1904-.     Berlin. 

2.  Specialized  Municipal  Periodicals.^"^ 

American  Gaslight  Journal,  v.  1-.     N.  Y. 

Concerning  Municipal  Ownership,  v.  1-4,  Mar., 
1906-June,  1909.     N.  Y. 

Electric  Railway  Journal,  v.  1-,  1908-.     N.  Y. 

Municipal  Engineering,  v.  1-,  June,  1890-.  In- 
dianapolis. 

Municipal  Journal  and  Engineer,  v.  1-.     N.  Y. 

Park  and  Cemetery  and  Landscape  Gardening, 
V.  1-,  Mar.,  1891-.     Chicago. 

Playground,  v.  1-,  April,  1907-.     N.  Y. 

Street  Railway  Journal  (merged  in  Electric  Rail- 
way Jr.),  V.  1-31,  1884-1908.     N.  Y. 

Street  Railway  Review  (merged  in  Electric  Rail- 
way Jr.),  V.  1-19,  1890-1908.     Chicago. 

Vigilance. 

3.  Publications  not  Primarily  Municipal. 

American  Academy  of  Political  and    Social    Science 
Annals,  1890-.     Phil. 

See  especially  issues  of : 

March,  1904,  Municipal  Problems. 

i"!  In  this  connection  might  be  mentioned  as  examples  of  organiza- 
tions which  do  not  publish  a  regular  periodical  but  which  are 
primarily  interested  in  some  special  municipal  problem  the  Short 
Ballot  Organization,  City  Planning  Conference,  American  Public 
Health  Association,  American  Association  of  Park  Superintendents, 
American  Waterworks  Association,  International  Association  of 
Chiefs  of  Police,  Pacific  Coast  Association  of  Fire  Chiefs,  etc. 


300  Law,  Legislative  Reference  and 

Jan.    1900,  Municipal  Ownership  and  Franchises. 

Nov.  1900,  Municipal  Problems. 

May   1908,  Control    of    Municipal     Public    Service 

Corporation. 
Nov.  1911,  Commission  Government    in    American 

Cities. 
May  1912,  Efficiency  in  City  Government. 

American  Civic  Association  Bulletin,  1904-. 

■\merican  Economic  Association   Publications,   1886-. 

N.  Y. 
American  Economic  Review,  v.  1-,  191 1-.     N.  Y. 
American  Journal  of  Sociology,  v.  1-,  1895-.    Chi. 
American    Political   Science   Association    Proceedings, 

v.  1    .  1904-. 
American    Political    Science    Review,    v.    1-,    1906-. 

Bait. 
Engineering  Magazine,  v.  1-,  1891-.     N.  Y. 
Engineering  News,  v.  1-,  1874-.     Chi.  and  N.  Y. 
Fire  and  Water  Engineering,  v.  1-,  1877-.     N.  Y. 
Good  Government    (National    Civil    Service    Reform 

League).     N.  Y. 
Good  Roads,  v.  1-,  1892-.     Bost. 
Government  Accountant,  v.  1-,  May,  1907-.     Wash., 

D.  C. 
Illuminating  Engineer,  v.  1-.    Mar.,  1906.     N.  Y. 
Journal  of  Political  Economy,  v.  1-,  1893-.   Chi. 
National  C^ivic  Federation  Review,  v.  1-,  1903-.   N.  Y. 
Political  Science  Quarterly,  v.  1-,  1886-.     N.  Y. 
(The)  Public,  V.  1-,  Apr.,  1898-.     Chi. 
Public  Service;    Electricity,  Gas,  Water,  Telephones, 

Tramways,  v.  1-,  1906-.     Chi. 
(^larterly  Journal  of  Economics,  v.  1-,  1886-.     Bost. 
Sjx?cial  Libraries,  v.  1-.     1910-.     Indianapolis,  Ind. 
SurN-ev,  V.  1-,  1891-.     N.  Y. 
Yale  Review,'02  v.  1-,  1892-.     New  Haven. 

"•"  It  should  be-  recalled  in  this  connection  that  the  bo-called  gen- 
eral magazines  occasionally  contain  valuable  articles  on  city  prob- 
lemh  and  that  the  legal  periodicals  consider  municipal  corporation 
law.     The  well-known  indexes  to  these  have  been  mentioned. 


Municipal  Reference  Libraries  301 

University  series  may  well  form  a  separate  group  of 
serial  publications  not  primarily  municipal,  but  fre- 
quently containing  important  monographs  on  municipal 
questions.     As  examples,  there  are: 

Columbia  University:  Studies  in  History,  Economics 
and  Public  Law.   v.  1-,  1891-.     N.  Y. 

e.g.,  Weber,  Adna  F.  The  Growth  of  Cities  in  the  I9th 
Century;  a  Study  of  Statistics.     495  p.     (1899.  v.  2.) 

Johns  Hopkins  University:  Studies  in  Historical  and 
Political  Science,  v.  1-,  1883-.     Bait. 

e.g.,  Thomas,  Thaddeus  P.  The  City  Government 
of  Baltimore.     14th  ser.,  IL  1896. 

University  of  Illinois:  Studies  in  the  Social  Sciences. 
v.  1-,  1912-. 

e.g.,  Upson,  Lent  Dayton.  Sources  of  Municipal 
Revenues  in  Illinois.     126  p.     1912.     (v.  1,  no.  3.) 

University  of  Toronto  Studies:  History  and  Economics. 

e.g.,  Shortt,  Adam.  Municipal  Government  in  Ontario; 
Municipal  Organization  in  Ontario  by  K.  W.  McKay; 
Bibliography  of  Canadian  Municipal  Government  by  S.  M. 
Wickett.     v.  II,  No.  2,  1903. 

University  of  Wisconsin:  Bulletin. 

e.g.,  Larson,  L.  M.  A  Financial  and  Administrative 
History  of  Milwaukee.     (No.  242,  1908.) 

e.g.,  MacGregor,  Ford  H.  City  Government  by  Com- 
mission. (No.  423,  1911.)  10'  151  p.  Bibliography  p. 
134-51. 

II.     State. 

(The)  Municipality,  v.  1-,  Madison,  Wis. 

Bi-monthly  organ  of  the  League  of  Wisconsin  Municipalities 
edited  by  Dr.  Ford  H.  MacGregor,  Municipal  Reference  Libra- 
rian, University  of  Wisconsin. 

'"'  A  list  of  indexes  to  university  doctoral  dissertations,  including 
foreign  material,  will  be  found  on  p.  15-16  of  Alice  B.  Kroeger's 
Guide  to  the  Study  and  Use  of  Reference  Books.  Chi.,  1908,  and  in 
the  Supplement  1909-1910  by  Isadore  G.  Mudge,  p.  8. 


302  Law,  Legislative  Reference  and 

Municipal  World.  St.  Thomas.  Ontario. ^o* 
Pacihc  Municipalities,  v.  1-,  San  Francisco. 
Monthly  organ  of  the  League  of  California  Municipalities. 

Many  state  organizations  have  been  formed  for  the 
purpose  of  considering  municipal  problems.  Among 
thi>so  not  already  mentioned  are  the  League  of  Michi- 
gan Municipalities,  Massachusetts  Civic  League,  Mu- 
nicipal (Government  Association  (Xew  York),  Ohio 
Municipal  Association,  various  Mayors'  Associations  like 
those  of  Texas,  \e\v  York,  and  Illinois.  State  Legislative 
Reference  Departments  may  be  recalled  here,  particularly 
those  of  California  and  Indiana,  Wisconsin  and  New- 
York. 

For  an  article  illustrating  the  work  of  state  leagues  see 
H.  A.  Mason's  "The  Work  of  the  League  of  California 
Municipalities"  in  the  National  Municipal  Review}^^ 

III.     Local. 

L     Official. 

Atlantic  City  Commission  Government. 

Boston  City  Record. 

Boston  Monthly  Record. 

Baltimore  Municipal  Journal. 

Burlington,  la..  Proceedings  of  the  City  Council 

under  the  Commission  Plan  of  Government. 
Centralia,  Wash.,  Monthly  Summary  Proceedings. 
Chattanooga  Municipal  Record. 
Colorado  Springs  Summary  of  Proceedings  and 

Department  Reports. 
Denver  City  of  Denver. 

Successor  to  Denver  Municipal  Facts. 
Houston  Progressive  Houston. 

"^  F'ul)lishe<i  monthly  in  the  interests  of  every  department  of  the 
munici|>al  institutions  of  Ontario. 
"*  1:001-10,  Oct.,  1912. 


Municipal  Reference  Libraries  303 

Lexington,  Ky.,  The  City  of  Lexington. 
■Los  Angeles  Lo5  Angeles  Municipal  News. 

A  weekly  newspaper  started  as  the  result  of  an  initiative 
ordinance  and  discontinued  by  the  repeal  of  the  ordinance.  An 
account  of  its  establishment  was  given  by  George  H.  Dunlop  in 
the  Nat.  Mun.  Rev.  1:  441-43,  July,  1912,  and  of  its  discon- 
tinuance by  the  same  writer,  formerly  chairman  of  the  munici- 
pal newspaper  commission,  in  the  Review,  2:  506,  July,  1912. 
It  was  published  from  April  17,  1912,  to  April  9,  1913. 

Memphis  Commission  Government. 

New  York  The  City  Record. 

Omaha  Municipal  Statistics. 

Philadelphia  Philadelphia. 

Sacramento  Municipal  Gazette  (announced) . 

San  Francisco  Municipal  Record. 

Seattle  Municipal  News. 

Spokane  Official  Gazette. 

Tacoma  Municipal  Bulletin. ^^^ 

Foreign. 

Dresdner  Anzeiger.^^'' 

Shanghai,  China:   Municipal  Gazette. 

In  addition,  a  large  number  of  cities  issue  statistical 
bulletins. 

Berlin:    Berliner  Statistik  hrsg.  v.  Stat.  Amt  d.  Stadt 
Berlin  ^^* 

"^  Cf.  "Official  Municipal  Gazettes"  by  Dr.  Henry  J.  Harris  in  the 
Nat.  Mun.  Rev.  2:  505-06,  July,  1913. 

I"'  Nat.  Mun.  Rev.  2:  319,  April,  1913. 

1°*  Silbergleit,  Heinrich.  Das  statistische  Amt  der  Stadt  Berlin, 
1862-1912.     81  p.     Berlin,  Gebruder  Grunert,  1912. 

An  historical  sketch  of  the  Bureau  of  Statistics  of  Berlin  by  the 
present  director,  followed  by  lists  of  those  connected  with  the  Bureau 
from  the  beginning  to  the  present,  an  account  of  the  library  of  the 
Bureau  and  a  complete  list  of  its  numerous  publications,  weekly, 
monthly,  annual,  and  special. 

See  also  Edward  M.  Hartwell,  "Report  on  Municipal  Statistical 
Offices  in  Europe"  (inBost.  City  Doc.  No.  94,  1897,  32  p.,  pub.  also 
in  Mun.  Affairs  1:  525-48)  and  John  A.  Fairlie,  "Comparative  Mu- 
nicipal Statistics"  in  his  £55a>'5  (N.  Y.,  Macm.  p.  275-78). 


304  Law,  Legislative  Reference  and 

IJuenos  Aires:  Mouthly Bulletin  of  Municipal  Statistics, 
covering  scientific,  social,  vital,  police,  financial,  loco- 
motion and  other  statistics. 

Caen.  France:  Bulletin  municipal  de  la  Ville. 

Dijon,  France:  Bulletin  municipal  officiel  de  la  Ville. 

London:  London  Statistics  (London  Count>'  Council 
publications). 

Munich:  Stat.  Amt  d.  Stadt  Miinchen.     Mitteilungen. 

Paris,  France:  Bulletin  municipal  officiel  de  la  Ville  de 
Paris.     Issued  daily. 

Shanghai,  China:   Municipal  Gazette. 

In  connection  with  this  it  may  be  well  to  call  attention 
to  a  partial  list  of  societies  of  state,  municipal,  and  other 
government  officials  which  was  published  in  Special 
Libraries,  January,  1912,^^  and  to  official  municipal  refer- 
ence libraries,  efficiency  commissions,  etc.,  mentioned 
on  p.  251-6L 

2.     Private  Organizations. 

(a)     Official  Organs  of  Local  Civic  Bodies.*^" 
Albany  (N.  Y.)  Citizen,  discontinued. 
Bulletin  of  the  City  Club  of  New  York. 
Bulletin  of  the   City  Club  of  Phila- 
delphia. 
Bulletin    of   the   Woman's  Municipal 

League  of  New  York. 
City  Affairs,  Good  Government  Asso- 
ciation of  Boston. 
City  Club  Bulletin.     Chicago. 
Civic  Bulletin,    Civic    League   of   St. 

Louis. 
Civic  Bulletin,  Pittsburgh. 
Civic    Club   Bulletin,  Woman's    Civic 

Club,  Philadelphia. 
Civic  League  Bulletin,  Newport,  R.  I. 
'"  V.  .3,  p.  Vt-7. 

""  Cf.  Beard,  Charles  .\.,  "Recent  Activities  of  City  Clubs."  (In 
Nat.  Mun.  Rev.  1:  431-43.5  July,  1912.) 


Municipal  Reference  Libraries  305 

Civics  Bulletin,  Civic  League,  Norwalk, 

Conn. 
Municipal  Bulletin,  Cleveland. 
Municipal  League  News,  Seattle. 

(b)  Commercial  News. 

Board  of  Trade  and  Engineering  Journal, 

Scran  ton,  Pa. 
Board  of  Trade  Journal,  Portland,  Me. 
Board  of  Trade  Journal,  Portland,  Ore. 
Chamber  of  Commerce  News,  Boston. 
Chicago  Commerce. 
The  Detroiter. 
Greater  Dayton. 
Greater  New  York. 
Monthly  Bulletin  of  the  Chamber  of 

Commerce  of  the  State  of  N.  Y. 
Municipal  Development  Magazine,  Chi. 

Progress,  Atlanta. 

Providence  Board  of  Trade  Journal. 

Western  New  England  (Springfield, 
Mass.). 

Worcester  Magazine. 

(c)  Local     Publications    not    Association 

Organs. 

Citizen  s  Bulletin,  Cincinnati. 

City  Life  and  Municipal  Facts  (Allied 
Real  Estate  Interests,  N.  Y.  C). 

Civil  Service  Chronicle  and  Police  Chron- 
icle, N.  Y.  C. 

Common  Good  of  Civic  and  Social  Char- 
acter, Rochester,  N.  Y. 

Public  Officials'  Magazine, Terre  Haute, 
Ind. 

(d)  Private   Municipal   Research  Bureau 

Publications  Should  be  Recalled. ^^^ 


"1  See  p.  416-423,  post. 


306  Law,  Legislative  Reference  and 

(d)  Miscellaneous  Pamphlets. 

From  miscellaneous  pamphlets  may  be  culled  publica- 
tions well  worth  preservation  in  a  special  library.  The 
term  pamphlet  is  indefinite  and  is  variously  applied  to 
almost  any  publication  unbound  or  in  paper  covers 
from  the  substantial  monograph  to  the  four-page  leaflet. 
Many  pamphlets  are  ephemeral  in  nature,  but  have  their 
temporary-  value.  Some  are  reprints  of  noteworthy 
articles,  others  propagandist  literature  of  the  rankest 
sort.  The  best  are  most  valuable  as  presenting  sum- 
marv  matter  in  concise  form  convenient  for  close  classifi- 
cation or  for  containing  fugitive  information  not  readily 
found  elsewhere  within  two  covers.  Good  judgment 
must  be  exercised  by  the  special  library  of  limited  means 
and  scope  in  the  selection  of  such  material  for  both 
temporar\-  and  permanent  files. 

(e)  Correspondence. 

Correspondence  has  its  place  in  a  discussion  of  "mate- 
rials" in  a  municipal  reference  library  because  it  is 
through  correspondence  only  that  much  needed  informa- 
tion can  be  obtained.  There  is  far  too  little  printed  infor- 
mation on  numerous  specific  activities  of  municipalities, 
and  various  comparative  data  needed  must  frequently  be 
accumulated  through  the  mails.  When  the  city  of  St. 
Louis  proposed  to  establish  a  municipal  lodging  house 
no  printed  source  was  at  hand  showing  adequately  the 
e.\|)crience  of  other  cities  from  which  as  a  basis  St.  Louis 
could  work.  The  municipal  reference  library  at  once 
through  correspondence  investigated  the  situation  in 
other  cities  and  published  in  the  Bulletin  "^  of  the  St. 

•"  July,  1912:  Covers  Boston,  Buffalo,  Chicago,  Cincinnati,  Cleve- 
land, Denver,   Detroit,   Kalamazoo,   Kansas  City,   Louisville,   Mil- 


Municipal  Reference  Libraries  307 

Louis  Public  Library  digests  of  the  reports  received  from 
twenty-three  cities  with  definite  and  carefully  considered 
recommendations  for  St.  Louis  based  on  the  data  gathered. 

Correspondence  has  another  permanent  value  aside 
from  a  record  of  comparative  practice  and  that  is  as  a 
record  of  results.  It  is  as  important  —  even  more 
important  —  to  know  the  result  of  an  ordinance  or  law 
as  to  know  merely  the  text,  and  this  information,  needed 
to  avoid  the  mistakes  of  others,  can  be  learned  only 
through  correspondence  or  personal  observation  in  all 
too  many  cases. 

This  makes  applicable  to  the  correspondence  of  a 
municipal  reference  library  the  recommendations  ^^^  of 
the  Presidents'  Commission  on  Economy  and  Efficiency 
on  correspondence  filing.  The  Commission  recommends 
vertical  files  and  a  self-indexing  classification  by  subject 
on  some  such  plan  as  the  Dewey  system  of  classification 
provides.  The  definite  value  of  some  correspondence 
will  also  warrant  a  reference  to  it  in  the  card  catalogue. 

(f)     Clippings. 

Clippings  from  newspapers  and  magazines  will  have 
to  be  made  and  kept  accessible.  The  local  papers 
especially  will  be  a  fruitful  source  of  information  for 
statistics  and  local  public  opinion,  the  views  of  prom- 
inent citizens  on  proposed  measures,  the  comments  of 
those  who  have  had  experience  with  some  plan  now  pro- 
posed for  the  city,  for  illustrations,  and  for  local  history. 
Magazine  articles  of  special  value  may  be  removed  from 

waukee,  Minneapolis,  New  Bedford  (Mass.),  New  York,  Philadel- 
phia, Providence,  St.  Louis,  Salem  (Mass.),  San  Francisco,  Seattle, 
Syracuse,  Toledo,  and  Worcester. 

"3  62  Cong.  2d  Sess.  H.  Doc.  670;  Apx.  7,  p.  515-54,  especially 
p.  521-22  and  528-31. 


308  Law,  Legislative  Reference  and 

their  bindings,  put  in  folders,  and  kept  in  the  vertical 
file  along  with  pamphlets  and  other  data  on  a  particular 
subject.  The  extent  to  which  this  work  is  carried  on 
depends  on  several  factors,  such  as  the  number  of  assis- 
tants, proximity  of  a  good  collection  of  indexed  maga- 
zines, etc.  There  are  those  who  believe  that  this  clipping 
idea  is  too  easily  carried  to  extremes  to  warrant 
venturing  upon  it. 

(g)     Local  Maps,  Plats,  Surveys,  Charts,  etc. 
These  should  be  available  or  their  location  in  city 
offices  known  definitely   to   the   librarian   and   perhaps 
recorded  in  the  catalogue. 

(h)     Bibliographies  of  Municipal  Affairs. 

Before  presenting  examples  of  bibliographies  of  mu- 
nicipal affairs  it  must  be  recalled  that  "municipal"  is 
primarily  a  geographical  term.  A  municipality  is  a 
corporate  administrative  unit  within  which  are  carried 
on  practically  all  lines  of  human  activity.  Moreover, 
the  city  is  officially  concerned  directly  or  indirectly  with 
most  of  these  activities.  The  "municipal  affairs"  then, 
to  be  covered  by  these  bibliographies  are  not  only  those 
first  thought  of  as  included  in  the  phrase  "government 
and  administration,"  but  they  are  such  activities,  in 
addition,  as  are  described  by  the  comprehensive  terms 
scientific,  engineering,  sanitary,  economic  and  social 
problems,  with  all  that  each  implies. 

Obviously  a  list  given  here  must  be  illustrative  only 
and  for  present  purposes  a  grouping  into  general  bibliog- 
raphies of  municipal  affairs  and  bibliographies  of  special 
municipal  activities  will  be  adopted.  Each  group  will 
be  subdivided  s(j  that  bii)liographies  compiled  or  pub- 
lished  by   libraries  will   be   separated    from   the  others 


Municipal  Reference  Libraries  309 

simply  as  a  convenience  in  acquisition,  as  those  com- 
piled by  libraries  can  usually  be  had  for  the  asking. 
Whether  or  not  a  given  title  is  a  separate  bibliography 
or  one  published  as  part  of  a  book  is  indicated  in  each 
case. 

I.     Bibliographies  of  Municipal  Affairs. 
1.     General. 

1.  American  City  Bureau. 

Selected  List  of  Municipal  and  Civic 
Books.    56  p.    N.  Y.     1913. 

An  alphabetico-classed  list  with  descriptive  and  critical 
notes;  contains  three  hundred  and  forty-five  titles,  nearly 
two  hundred  of  which  have  been  published  within  the  last 
three  years. 

2.  A.  L.  A.  Catalog.  .  .  Wash.    1904. 

p.  97:  "Local  Government." 

3.  A.  L.  A.  Catalog,  1904-1911.     Chi. 

1912. 

p.  61:    "Local  Government." 

4.  Brooks,  Robert  C. 

Bibliography  of  Municipal  Admin- 
istration and  City  Conditions.   (In 
Mun.   Affairs,  vol.    1,  no.    1;    p. 
iii-ix,  1-224;    1897.) 
In  two  parts:    (a)  Subject  index,     (b)  Authors.     This  bibli- 
ography contams  over  6,000  entries  and  covers  the  books, 
pamphlets,  and    periodical    literature  of    the    United    States' 
Great  Britain,  Germany,  France,  Italy,  Austria,  and  Spain  and 
mcludes  all  relevant  American  material  even  to  the  smallest 
pamphlets  and  the  more  important  federal  and  state  docu- 
ments.    Formal  accounts  and  routine  reports  of  cities  and 
reform  organizations  have  not    been   included   except    where 
specially  important  matter  justifies  mention.     In  addition  to 
entering    books,    etc.,    under    general    subjects,    considerable 
analytical  work  has  been  done  so  that  references  are  to  chap- 
ters or  sections  ot  books  in  many  instances. 

This  bibliography   was   continued   quarterly   in   Municipal 
Affairs  and  the  whole  cumulated  in  the  next  title. 


310  Law,  Legislative  Reference  and 

5.     .     Bibliography     of     Municipal 

Problems  and  City  Conditions.  Ed. 
2.  (In  Mun.  Aff.  v.  5,  No.  1,  p.  1- 
346,  190L) 

In  this  enlarged  second  edition  material  which  was  listed 
under  the  headings  "administration"  and  "reform,"  has  been 
placed  first  under  the  classification  "City  government,  general 
works  and  unclassified."  Subjects  are  arranged  alphabetically 
alter  this.  The  one  e.\ception  to  the  strictly  alphabetical 
arrangement  is  that  general  works  on  municipal  government  are 
placed  first  under  the  names  of  separate  cities  and  states. 

Bibliographies  of  special  municipal  activities  are  listed  under 
the  specific  subject,  sub-head  "Bibliographies."  In  this  sec- 
ond edition  the  "Author  list"  is  simply  a  two  column  to  the 
j)age  author  index. 

(The  last  continuation  of  this  appeared  in  Municipal 
Affairs,  v.  6,  p.  866-79.) 

6.  Brown,  Charles  Harvey. 

List  of  Titles  on  Municipal  Govern- 
ment with  Special   Reference   to 
City  Charters  and  to  Local  Condi- 
tions in  Chicago.      1906.     (City 
Club  of  Chicago.    Publication  no. 
3).     51  p. 
A  classified  list  compiled  solely  with  reference  to  the  require- 
ments  of    the   Chicago   Charter   Con\ention   and   pertaining 
particularly  to  the  structure  of  city  government.     The  list  is 
briefly  annotated  and  contains  an  author  index.     Although 
seven  years  old  it  still  is  and  for  some  time  will  be  one  of  the 
important  bibliographies. 

7.  Chicago  Normal  School. 

.  .  .  Outline    for  Teaching  Civics    in 
Elementary  Schools.    1904(?) 

8.  Commons,  John  R. 

City  Government.  1898.  (Univer- 
sity of  the  State  of  New  York.  Ex- 
tension Department.  Syllabus  73). 

9.  Gewerbe-Buchhandlung  Ernst  Schur- 

mann,  Dresden. 

Die    Literature    des    Stadtewesens 

in  technischer  und  hygienischer 

Beziehung.     1903. 


Municipal  Reference  Libraries  311 

10.  Gomme,  George  Laurence. 

The  Literature  of  Local  Institutions. 
248  p.     Lond.     1886. 

11.  Gross,  Charles. 

A  Bibliography  of  British  Municipal 
History  including  Gilds  and  Par- 
liamentary Representation.    N  Y 
Longm.     1897.      461   p.      (Har- 
"Tu-    u-uf         ,     ^^'■^  Historical  Studies,  Vol.  V.) 
I  his  bibliography  comprises  books,  pamphlets,  magazine 
articles,  and  papers  of  learned  societies,  relating  whoTlyTr  in 
part  to   British  municipal   history;    in  other    words    to  the 
governmental   or  constitutional   history   of  the   boroughs   of 
t?t?nn   ^T  ^'"'  .^'^^^"ding  gilds  and   parliamentary   represen- 
atipn.     Town  histories  which  do  not  deal  with  any  of  these 

Sed^'v'Sf'.'P?^^''?^^^^^  works,.and  parish  histories  are 
omitted.   (Fref.)     Contains  many  brief,  critical  notes. 

^2-  .  A  Classified  List  of  Books  Relat- 
ing to  British  Municipal  History. 
1891.  (Harvard  University.  Li- 
brary. Bibliographical  contribu- 
tions, no.  43.) 
13.     Hodder,  Frank  H. 

Bibliography  of  Municipal  Govern- 
ment in  the  United  States.     (In 
Kansas  University  Quarterly,    1  • 
179-96.     1893.) 
13a.  Munro,  William  Bennett. 

Guide  to  the  Study  of  Municipal 
Government  (in  preparation). 

14.  Munro,  William  Bennett. 

Sources  and  Literature.  (In  his  The 
Government  of  European  Cities. 
N.  Y.  Macm.   1909.  p.  380-402.) 

15.  National  Municipal  Review,  \  1-  Ian 
1912-.  'J 'I"-. 

Tn£^T*^'i^-'r   Department  of  Reports  edited  by  Professor 
John   A.    Fairhe   and  its    Department  of    Recent    Municioa^ 

January,  1913,  each  issue  contained  a  bibliography  of  current 
references  on  municipal  affairs,  including  documents. 


312  Law,  Legislative  Reference  and 

16.  Rex,  Frederick. 

Sources  of  Municipal  Information. 
{InSpec. Libs., Dec,  1910, p. 75-7  6.) 

17.  United  States  Catalog;   Books  in  Print 

January  1.  1912,  ed.  by  Marion  E. 
Potter  and  others.  Ed.  3.  Wilson, 
Minn.,  1912.  (See  entries  under 
"municipal,"  p.  1719-22.) 

18.  U.  S.  —  Census  Bureau. 

Guide  to  the  Exhibit  of  Municipal 
Statistics  of  the  .  .  .  Bureau  at 
the  International  Municipal  Con- 
gress and  Exposition.  Chicago, 
1911.   38  p.   Wash.,  1911. 

19.  Wilcox,  Delos  F. 

List  of  Authorities.  (In  his  Study  of 
City  Government.  1897.  p.  245- 
48.)     N.  Y.     1897. 

20.  Woodruff,  Clinton  Rogers. 

Sources  of  Municipal  Material  with 
Reference  to  a  Clearing  House  of 
Information.  {In  Spec.  Libs.  Dec, 
1911.     p.  112-14.) 

2,     General :    Compiled  and  issued  by  Libraries. 

Where  the  month  is  specified  it  refers  to  the  Bulletin  of  the 
library  listed  for  that  month.  Where  no  month  is  specified  it 
may  be  assumed  that  the  publication  was  a  separate. 

1.  Braddock  (Pa.)  Carnegie  Library. 

Municipal  and  Civic  Affairs.    1909. 

2.  Chicago.      Bureau    of   Statistics    and 

Municipal  Library. 
Catalogue  of  the  Chicago  Municipal 
Library.     149  p.     1908. 

3.  Chicago.     Public  Library. 

Check  list  of  Books  and  Pamphlets  on 
Municipal  Government  Found  in 
the  Free  Public  Libraries  of  Chi- 
cago.    44  p.     1911. 


Municipal  Reference  Libraries  313 

4.  Chicago  Public  Library. 

Selected  Reading  List  on  Municipal 
Government,  with  Special  Refer- 
ence to  the  New  Charter  Move- 
ment. 1905.  {Special  Bulletin 
No.  5.) 

5.  Cornell  University  Library. 

References   on    Municipal    Govern- 
ment in  the  United  States.    (Bulle- 
xu-uv  ^'""T-  113-118;  Jan.,  1888.) 
A  bibliographical  discussion,  not  a  list  of  titles. 

6.  Detroit  Public  Library. 

Municipal  Affairs  — Books  and  Art- 
icles.    44  p.     1902. 

7.  Kansas  City  (Mo.)  Public  Library. 

Municipal  Betterment  Bibliography. 
(In  its  Quarterly,  April,  1908.  o 
21-71.)  1908.  ^* 

8.  New    Haven     (Conn.)     Free    Public 

Library. 

Selected  List  of  References  on  Mu- 
nicipal  Affairs.     15  p.     1910 
.    Lists  mainly  books  and  only  a  few  of  the  more 
important  magazine  articles. 

10.  St.  Joseph  (Mo.)  Public  Library. 

Municipal  Affairs.    July,  1909. 

11.  Salem  (Mass.)  Public  Library. 

Municipal  Government.      Tanuarv 
1911.  ^' 

12.  Seattle  (Wash.)  Public  Library. 

Municipal  Government.  31  p.  1911. 
{Reference  List  no.  4.) 

13.  Somerville  (Mass.)  Public  Library. 

Municipal  Affairs.     Feb.,  1911. 

14.  Syracuse  (N.  Y.)  Public  Library. 

Social  Betterment.  Jan.-Apl.,  June 
July,  1911.    (Also  pub.  sep.    64  p.) 


314  Law,  Legislative  Reference  and 

15.  U.  S.  Library  of  Congress. 

Select  List  of  Books  on  Municipal 
Affairs  with  special  Reference  to 
Municipal  Ownership;  with  Ap- 
pendix, select  List  of  State  Docu- 
ments. 34  p.  1906. 
Briet  annotations. 

16.  Wilmington  Institute  Free  Library. 

List  of  Books  and  References  to 
Periodicals  on  Municipal  Govern- 
ment.    27  p.     1911. 

17.  Wisconsin  Free  Library^  Commission. 

Civic  Advancement  and  Develop- 
ment.    May-June,  1911. 

18.  Worcester  (Mass.)  Public  Library. 

Municipal  Improvement.  Jan.,  1911. 

II.     Special  Topics. 

1.  The  special  lists  of  references  or  authorities 
preceding  or  accompanying  the  chapters  in  the  following 
books  on  general  municipal  government  will  be  found 
excellent  select  bibliographies  of  the  special  phases 
of  municipal  activity  treated  in  the  separate  chapters. 

Fairlie,  John  A. 

Municipal  Administration.  448p.  N.Y.  Macm. 
1910. 

"Authorities"  precede  each  chapter. 
Goodnow,  Frank  J. 

Citv  Government  in  the  United  States.  315  p. 
X.  Y.'    Cent.     1906. 

"Authorities"  given  as  note  1  at  beginning  of  each  chapter. 
Munro,  William  Bennett. 

TheGovcrnmcnt  of  American  Cities.  401  p.  X.Y. 
Macm.     1912. 

"Reiercnces"  at  the  end  of  each  chapter  form  a  more  ex- 
tended list  than  those  in  Fairlie  or  Goodnow  and  are  briefly 
evaluated. 


Municipal  Reference  Libraries  315 

Professor  Charles  A.  Beard's  Loose  Leaf  Digest  of  Short 
Ballot  Charters  beginning  at  page  81001,  contains  a 
bibliography  of  special  value  divided  as  follows:  1.  City 
government  —  general;  II.  Commission  government; 
III.  Government  of  individual  cities;  IV.  Special  phases 
of  city  government;  V.  General  and  miscellaneous.  A 
four-page  loose-leaf  addition  to  section  II  and  a  two- 
page  addition  to  section  III  have  been  issued  since  the 
original  volume  appeared. 

In  this  connection  particular  attention  should  be 
called  to  the  bibliographies  which  appear  frequently  in 
Special  Libraries,  many  of  which  are  on  municipal  sub- 
jects.    Four  illustrations  are  selected   at  random. 

City  planning    {Spec.  Libs.  3:  61-123,  May   1912) 
Motion  pictures  {Spec.  Libs.  3:  154-58,  Sept.  1912) 
Public  drinking  cup  {Spec.  Libs.  2:  42-44,  May  1911) 
Public  utilities  {Spec.  Libs.  3:  133-36,  June  1912) 

Additional  bibliographies  on  special  subjects  are 
illustrated  by 

Charters. 

Brown,  Charles  Harvey. 

List  of  Titles  on  Municipal  Government  with 
Special  Reference  to  City  Charters  and  to  Local 
Conditions  in  Chicago.  1906.  51  p.  (City  Club 
of  Chicago,  Publication  No.  3.) 

Reynolds,  James  Bronson,  ed. 

Civic  Bibliography  for  Greater  New  York.  N.  Y. 
1911. 

Charters,"  p.  32-39:  five  pages,  mainly  documentary 
material,  and  17  magazine  articles. 


3lij  Law,  Legislative  Reference  and 

Commission  Government."^ 

Bradford,  Ernest  S. 

List  of  References.  (Inhls  CommissionGoverntne7it 
for  American  cities.  N.Y.  Macm.  1911.  p.  339-353.) 
The  references  are  arranged:  1.  Commission  charters  and 
laws.  2.  General  references.  3.  References  in  periodicals. 
3(a)  Particular  periodicals  containing  many  references  on  the 
subject. 

MacGregor,  Ford  H. 

Bibliography.  (In  his  City  Government  by  Com- 
mission. Madison,  Wis.  1911.  (Univ.  of  Wis.  Bui. 
No.  443.)     p.  134-51. 

The  bibliography  separates  affirmative  and  negative  refer- 
ences, p.  134-51. 

Robbins,  E.  C.,  comp. 

Selected  Articles  on  the  Commission  Plan  of  Muni- 
cipal Government.  Ed.  2.  enl.  Minn.  H.  W.  Wil- 
son, 1910.  .  .  .   178  p.    (Debaters' Handbook  Series.) 

Bibliography,  p.  xv-xxvi. 

Documents."* 

Langworthy,  C.  F. 

State  and  Municipal  Documents  as  Sources  of 
Information  for  Institution  Managers  and  Other 
Students  of  Home  Economics.  (Journal  of  Home 
Economics,  Feb.,  1912,  p.  59-73.) 

New  York  City. 

Reynolds,  James  Bronson,  ed. 

Civic  Bibliography  for  Greater  New  York.  312  p. 
N.  Y.     Charities  Publication  Society,  1911. 

.\  remarkably  thorough  and  comprehensive  work  of  unique 
value  in  many  unexpected  fields  and  beyond  the  limits  of 
Cireater  New  York;  carefully  classified,  briefly  annotated, 
well  indexed;  full  bibliographical  details;  bibliographies  of 
special  subjects  are  listed  first  under  the  subject,  books  and 
articles  follow  in  separate  lists. 

"♦  See  also  Beard,  Loose  Leaf  Digest,  supra. 

•"  See  infra,  p.  274-88,  especially  282-88,  and  322. 


Municipal  Reference  Libraries  317 

Periodicals  (Municipal). 

Howland.  William  B. 

Municipal  Periodicals  (in  Nat.  Mun.  League  Conf. 
for  Good  City  Government,  1909.   p.  12-16). 

Kaiser,  John  Boynton. 

Serial  Publications;  Periodicals,  Society  Proceed- 
ings, etc.  (on  municipal  matters),    {infra  p.  297-305.) 

Munro.  \Mlliam  Bennett. 

Municipal  Reform  and  Reformers.  (I  n  his  Govern- 
ment of  American  Cities,  p.  358-85.) 

Williamson.  Charles  C. 

Periodical  Publications  on  Municipal  AflFairs.     (In 

Xat.  Mun.  Rei\  1:  406-10,  July,  1912.) 

Recreation. 

Russell  Sage  Foundation  Division  of  Recreation. 

Recreation  Bibliography.  37  p.  N.  Y.  1912. 
(Publication  121.) 

An  up-to-date,  classified,  and  annotated  list  frequently  giv- 
ing prices  of  titles  entered,  followed  by  a  list  of  publishers  with 
addresses. 

Smoke  Prevention. 

McClelland,  Ellwood  H. 

Bibliography  of  Smoke  and  Smoke  Prevention. 
Pittsburgh,  University  of  Pittsburgh.    1913. 

Taxation  and  Finance,  Local. 

Journal  of  Political  Economy. 

Bibliographv  of  Economics  for  1909.  Chi.  1910. 
(p.  128-30). 

2.     Special  Topics:  Compiled  and  issued  by  Libraries. 

Charters. 

Chicago  Public  Library. 

Selected  Reading  List  on  Municipal  Government 
with  Special  Reference  to  the  Xew  Charter  Move- 
ment.    1905.        [Special  bulletin  no.  5.) 


318  Law,  Legislative  Reference  and 

Grand  Rapids  (Mich.)  Public  Library. 

Some  Books  and  Articles  Dealing  with  Charters  for 
Cities  together  with  a  List  of  Cities  whose  Charters 
are  on  File  in  the  Library  {Bulletin,  Sept.,  1910,  p. 
124-27). 

Child  Welfare. 

Brookh-n  Public  Library. 

Welfare  of  Children:  List  of  Books  and  Articles 
on  Care  of  Dependent  Children.  44  p.  Brooklyn. 
1908. 

St.  Louis  Public  Library. 

List  of  Books  and  Articles  on  Child  Welfare  and  a 
Reading  List  for  Use  with  the  Junior  Civic  League. 
11  p.     St.  Louis.     1912. 

City  Planning. 

Milwaukee    Public     Library  —  Municipal     Reference 
Branch. 

City  planning.    4  p.    Nov.,  1911. 

N'ew  York  School  of  Philanthropv  Library. 
Town  Planning.    {Bui.  Mar.,  1912). 

Portland  (Oregon)  Public  Library. 
City  Planning.     (Oct.,  1911). 

St.  Louis  Public  Library. 

City  Planning  and  Civic  Centers.      11   p.     1912. 
(Compiled  by  Jesse  Cunningham,  formerly  municipal  reference 
librarian). 

Seattle  Public  Library. 

Municipal  Plans.  13  p.  1910.  (Reference  list 
No.  1.) 

Commission  Government. 

Cambridge  (Mass.)  Public  Library. 

Municipal  Government  by  Commission.  Oct., 
1911. 


Municipal  Reference  Libraries  319 

Indiana  State  Library. 

Municipal  Government  by  Commission.      Nov., 

Osterhout  Public  Library  (Wiikes-Barre). 

Municipal   Government   by   Commission.      Tan 
19n.  -^       ' 

Garbage  DisposaL 

New  York  Public  Library. 

List  of  Works  on  City  Wastes  and  Street  Hygiene  in 
the  New  York  Public  Library.      (Bui.   16-  731-83 
Oct.,  1912.) 

Pittsburgh :  Carnegie  Library. 

Refuse  and  Garbage  Disposal.     (Bid.  Tan     1909- 
also  reprinted  39  p.)  v         j       -  , 

Housing. 

New  York  School  of  Philanthropy  Library. 
Improved  Housing.    {Bui.  May,  1912). 

Juvenile  Delinquency. 

New  York  School  of  Philanthropy  Library. 
Juvenile  Delinquency.    {Bui.  Feb.,  1912). 

New  York. 

Brooklyn  Public  Library. 

List  of  Books  on  Greater  New  York.    34  p.  Brook- 
Includes  "New  York  in  Fiction." 

Playgrounds. 

Portland  (Oregon)  Public  Library. 
Playgrounds.     May,  1911. 

Schools. 

Rockford  (III.)  Public  Library. 

School  as  Social  Center.    March,  1911. 


:V2()  Law,  Legislative  Reference  and 

School  Hygiene. 

Michigan  State  Library. 

School  Hvgiene  and  Medical  Instruction  in 
Schools.     (Si</.  Jan.-Mar.,  1911). 

Sewage  DisposaL 

Pittsburgh  Carnegie  Library. 

Sewage  Disposal  and  Treatment.  {Bui.  Nov., 
1910;  also  reprinted,  96  p.) 

Smoke  Nuisance. 

W'atkins.  Sloan  D. 

Smoke  Nuisance,  its  Cause,  Abatement,  Preven- 
tion ...  (in  St.  Louis  Public  Library  Monthly  Bul- 
letin, n.  s.,  v.  II:  p.  54-56,  Feb.,  1913). 

Water  Supply. 

New^  York  Public  Librar>\ 

Check  List  of  Works  relating  to  the  Water  Supply, 
Sewers,  etc.,  of  the  City.    {Bui.  5:  133-140,  1901.) 

A  number  of  titles  might  be  added  to  any  of  the  above 
groups.  The  list  of  special  bibliographies  particularly 
could  be  almost  indefinitely  extended  by  consulting 
such  things  as  W^illiam  Prideaux  Courtney's  Register 
of  Xational  Bibliography  ^^^  with  its  subject  indexes,  and 
other  bibliographies  of  bibliography  such  as  Petzholdt, 
Stein,  Josephson  and  others."^  What  bibliographies 
are  appearing  each  year  may  be  learned  by  consulting 
the  Annual  Library  Inde.x^^^  which  has  an  entire  section 

"«  3  V.     London.    Constable,  190.5-1910. 

'"  For  an  extended,  annotated  list  of  bibliographies  of  bibliography 
and  general,  national,  and  special  bibliographies  see  Alice  B.  Kroeger, 
Guide  to  the  Study  and  Use  of  Reference  Books.  Ed.  2.  Enl.  A.  L.  A. 
Bobion.     1908.     p.  99-110. 

»•  Publishers'  Weekly,  N.  Y. 


Municipal  Reference  Libraries 


321 


devoted  to  current  bibliographies  and  the  Annual 
American  Catalogue  under  the  heading  "bibliography." 
The  efforts  of  libraries  in  this  field  may  be  learned  from 
Mrs.  Alice  (Newman)  Nachtmann's  Index  to  Subject 
Bibliographies  in  Library  Bulletins  to  Dec.  31,  1897^^^  and 
the  Providence  Public  Library's  Index  to  Reference 
Lists  published  in  Library  Bulletins  from  Oct.  1901  to  Dec. 
1906,  inclusive. '^^^  This  last  title  and  continuations  have 
been  published  in  the  Bulletin  of  Bibliography  ^^^  as  follows : 

Index  for  1901-1906:  in  v.    4:  p.  159-66. 
(con.)  5:  p.    17-20. 
1907-1908: in  v.   5:  p.  125-26. 
(con.)  5:  p.  149-52. 

1909  :in  V.   6:  p.    74-77. 

1910  :in  V.   6:  p.  177-80. 

1911  :inv.  6:  p.  303-06. 

1912  :inv.   7:  p.    84-88. 

1913  :  in  v.  8:  p.      7-10. 

3.     Handling  of  Materials. 

(a)     Acquisition. 

1.  Sources  to  be  Watched. 
The  sources  to  be  watched  for  notices  of  new  material 
on  municipal  affairs  including  books,  pamphlets,  docu- 
ments, etc.,  are  mainly  the  periodical  publications  and 
current  indexes  to  federal  and  state  documents.  Of 
the  periodicals  certain  ones  are  naturally  more  valuable 
than  others  for  this  purpose.  The  National  Municipal 
Review  is  easily  first  and  covers  the  whole  field,  not 
emphasizing,   however,   as  yet,   municipal   engineering. 

"3  Albany,  N.  Y.  State  Library.     1898.    Bulletin  Bibliography  14. 

120  Boston.     Bost.  Bk.  Co.    31  p.     1907  {Bulletin  of  Bibliography 
Pamphlet  no.  16). 

12'  Boston  Book  Co.  (quarterly). 


322  Law,  Legislative  Reference  and 

The  Municipal  Journal  and  Engineer  and  Municipal 
Engineering  cover  this  latter  field.  The  American  City 
would  take  second  place  among  municipal  periodicals 
general  in  scope.  Of  periodicals  not  primarily  municipal 
the  American  Economic  Review,  the  American  Political 
Science  Rn'ieu',  Special  Libraries  and  the  Survey  are 
among  the  best  for  noticing  current  publications  on  munic- 
ipal affairs. 

These  periodicals  frequently  note  also  the  appearance 
of  important  official  documents,  a  complete  conspectus 
of  which  is  afforded  by  the  Monthly  Catalogue  of  the 
Superintendent  of  Documents  for  federal  publications 
and  by  State  Publications  of  the  Library  of  Congress  for 
state  material.  The  National  Municipal  Review  is  the 
best  source  for  notices  of  current  city  documents. 

The  most  prompt  notices  of  books  published,  except 
the  advance  information  given  in  publishers'  advertise- 
ments and  the  lists  of  books  in  press  sent  by  them  to 
such  magazines  as  The  Nation  and  The  Dial,  will  be 
found  in  the  Publishers'  Weekly,  New  York.  In  addi- 
tion to  news  of  the  book  trade  generally,  this  publication 
lists  each  week  in  an  alphabetical  list  by  author  the 
new  books  with  full  bibliographical  details  such  as  pub- 
lisher, price,  and,  frequently,  a  descriptive  note.  The 
list  is  cumulated  each  month,  every  three  months,  semi- 
annually, and  yearly  in  dictionary  form. 

Library  lists  of  recent  accessions  as  published  in  their 
Bulletins  will  frequently  be  the  means  of  calling  atten- 
tion to  a  useful  title  previously  overlooked.  Among 
Bulletins  particularly  valuable  in  this  connection  might 
be  named  those  of  the  New  York,  Pittsburgh,  St.  Louis, 
and  Chicago  libraries. 


Municipal  Reference  Libraries  323 

The  indexes  to  the  general  magazines  again  should  be 
recalled  and  particularly  the  "Municipal  Index"  appear- 
ing monthly  in  the  Municipal  Journal  and  Engineer. 
This  last  indexes  all  articles  on  municipal  affairs  pub- 
lished in  the  general  magazines. 

2.     Actual  Acquisition. 

Acquisition  will  be  accomplished  through  the  usual 
channels  of  gift,  exchange,  and  purchase. 

(a)  Gift. 

Nearly  all  documentary-  material,  reprints  of  articles, 
some  society  proceedings,  and  many  pamphlets  can  be 
secured  free  of  cost,  particularly  if  a  good  reason  is  given 
for  the  request  and  if  postage  is  forwarded. 

(b)  Exchange. 

When  the  librar\-  publishes  a  regular  bulletin  this  can 
be  made  to  ser\'e  in  some  instances  as  an  exchangeable 
commodity-  for  publications  desired,  especially  for  those 
issued  by  societies. 

The  National  Municipal  League  recommends  that 
municipal  reference  libraries  be  made  the  exchange 
agencies  for  the  official  publications  of  their  cities.  This 
recommendation  should  be  emphasized  as  it  will  assure 
their  being  placed  where  they  are  wanted  for  definite  use, 
and  has  been  followed  in  several  instances,  notably  in  St. 
Louis  and  Chicago. ^- 

(c)  Purchase. 

Purchase  through  the  book  trade  should  secure  what- 
ever else  is  needed  and  the  methods  have  already  been 
described  by  too  many  others  to  need  repetition.  After 
the  initial  collection  of  standard  books,  periodicals,  and 

1"  See  p.  407,  416,  post. 


324  Law,  Legislative  Reference  and 

society  proceedings  has  been  secured,  a  relatively  small 
amount  will  be  necessary  for  additional  purchases.  This 
will  naturally  be  expended  for  new  treatises  on  mu- 
nicipal government  and  on  special  municipal  problems, 
for  continuations,  and  additional  society  transactions. 

(b)     Classification. 

The  time  has  not  yet  come  when  it  can  be  said  that  this 
or  that  system  of  classification  is  the  system  to  be  used 
by  municipal  reference  libraries.  At  present  they  do 
not  all  apply  the  same  system  of  classification  to  the 
material  they  collect  nor  does  each  apply  the  same  sys- 
tem to  all  its  own  material,  as  was  noticed  in  the  case 
of  the  legislative  reference  library. 

The  Dewey  Decimal  System,  somewhat  expanded,  has 
been  favored  by  more  such  libraries  than  has  any  other. 
It  is  in  use  in  Kansas  City,  Baltimore,  St.  Louis,  the 
municipal  reference  section  of  the  Indiana  Bureau  of 
Legislative  and  Administrative  Information,  at  the 
Municipal  Research  Bureau  of  the  Univ'ersity  of  Illi- 
nois, and  numerous  other  places.  The  expansions  of  the 
Decimal  System  prepared  in  the  Indiana  and  Wisconsin 
legislative  reference  libraries  primarily  for  their  own  use 
are  more  satisfactory  for  this  purpose  than  the  original. 
These  two  expansions  differ  in  detail  and  that  of  Wis- 
consin, typewritten  copies  of  which  are  for  sale,  has  been 
adopted  by  new  bureaus  in  several  instances. 

The  revision  of  the  Decimal  Classification,  eighth  edi- 
tion, recently  issued,  was  made  with  more  regard  for 
the  needs  of  certain  special  libraries,  particularly  munic- 
ipal and  legislative  reference  libraries,  and  answers 
more  nearly  the  needs  of  the  latter  than  do  previous  edi- 
tions,   though    of    the    two,    legislative    procedure   and 


Municipal  Reference  Libraries  325 

functions  and  the  field  of  state  legislation  are  more  ex- 
panded than  municipal  affairs.  The  ninth  edition, 
already  under  way,  promises  even  more  development  in 
both  these  fields. 

The  temporary  scheme  of  classification  used  by  the 
Wisconsin  municipal  reference  library  is  an  alphabetical 
arrangement  of  general  subjects  with  sub-divisions  of 
each  also  alphabetically  arranged.  Its  director  has  said 
that  on  establishing  the  work  in  the  new  university 
library,  in  the  near  future,  the  system  employed  in  the 
legislative  reference  library  will  be  followed.  A  more 
extensive  application  of  this  alphabetical  system  of 
classification  is  illustrated  by  the  library  of  the  New 
York  PubHc  Service  Commission,  First  District,  de- 
scribed by  its  statistician-librarian.  Dr.  Robert  H. 
Whitten,  in  an  exceedingly  lucid  article  in  Special 
Librariesy^^ 

Classification  in  vertical  filing  cabinets  may  be  by 
means  of  the  Decimal  System,  preferably  expanded,  or 
alphabetically  by  subject-headings  assigned  each  pam- 
phlet filed.  Not  infrequently  one  system,  more  likely  the 
Decimal,  is  used  for  material  shelved,  i.e.,  books,  and 
another,  alphabetically  by  subject,  in  vertical  files.  This 
combination  is  in  use  in  the  Kansas  City  Bureau. 

The  "Local  Government"  (JS)  section  of  the  Library 
of  Congress  classification  of  political  science  (J),  while 
planned  primarily  for  a  large  collection,  could  be  adopted 
in  a  municipal  reference  library  to  good  advantage.  It 
is  up-to-date,  scientifically  planned,  and  thoroughly 
indexed.  Unless  the  arguments  that  figures  alone  are 
preferred  to  a  combination  of  figures  and  letters,  and 
that  the  municipal  reference  library  should  be  classified 

"»1:  18-20,  March,  1910. 


326  Law,  Legislative  Reference  and 

according  to  the  system  used  in  the  main  library  of 
which  it  is  a  branch,  and  in  the  majority  of  municipal 
reference  libraries,  prevail,  the  Library  of  Congress  clas- 
sification should  receive  careful  consideration  before 
determining  upon  a  system  for  such  work  as  is  under 
discussion. 

(c)     Cataloguing. 

There  are  few  general  principles  of  cataloguing  for 
legislative  reference  libraries  that  are  not  equally  appli- 
cable in  municipal  reference  work.  Make  the  catalogue 
so  that  it  will  help  to  produce  on  demand  that  material 
which  most  specifically  answers  the  needs  of  the  imme- 
diate inquiry.  Let  the  material  be  not  only  prompt  in 
appearance,  but,  as  a  result  of  annotation  on  the  cata- 
logue card,  presented  to  the  inquirer  with  a  statement 
of  its  reliability  or  bias,  and  of  its  scope,  particularly  if 
comparative  in  nature. 

To  render  this  service,  special  care  must  be  employed 
in  assigning  subject-headings  and  it  should  be  done  by 
one  thoroughly  familiar  with  the  current  phraseology  of 
municipal  and  social  problems.  Cross  references  should 
be  plentiful,  but  made  with  such  judgment  that  they 
will  not  become  a  source  of  confusion  and  annoyance 
rather  than  an  aid. 

Several  different  catalogues  will  be  found  serviceable. 
The  catalogue  of  the  municipal  reference  collection  itself 
would  be  one.  Into  this  could  be  incorporated  cards 
for  material  in  the  main  library  which  may  prove  use- 
ful but  which  is  not  kept  continually  at  hand.  A 
second  file  of  cards  might  cover  only  comparative  data 
including  laws,  ordinances,  statistics,  and  actual  results, 
with  notes  showing  in  each  case  what  states,  cities,  etc., 


Municipal  Reference  Libraries  327 

were  taken  up  in  the  comparison.     Much  of  this  will  of 
course  be  analytical  cataloguing. 

Individual  local  ordinances  may  well  be  catalogued 
separately  and  the  same  may  be  said  for  the  local  state 
law  on  municipal  subjects.  Special  collections  of  data 
in  other  libraries,  and  the  results  of  special  investigations 
and  bibliographical  research  in  municipal  and  legislative 
reference  libraries  and  in  bureaus  of  municipal  research 
in  other  cities,  particularly  the  MS.  data  they  have  col- 
lected or  compiled,  should  be  made  know^n  through  your 
own  card  catalogue. ^-^  This  could  be  extended  to  cover 
local  offices  such  as  those  of  the  city  attorney,  treasurer, 
surveyor,  and  others,  if  they  contain  publications  or 
files  of  records  to  which  access  may  be  needed. 

Temporary  catalogues  may  be  found  convenient  for 
material  on  subjects  under  investigation  by  a  com- 
mittee and  for  the  advance  sheets  of  publications  w^hich 
will  be  indexed  later.  Such  catalogues  would  be  filed 
into  the  main  catalogue  after  they  had  served  their 
immediate  special  purpose. 

No  guides  aiming  specifically  to  aid  in  assigning  sub- 
ject-headings in  this  special  field  of  cataloguing  have 
been  prepared.  Those  mentioned  in  connection  with 
law  1-^  and  legislative  reference  ^''  libraries  will  be  found 
helpful.  Although  not  prepared  for  that  purpose  the 
lists  of  topics  on  which  the  Baltimore,  Kansas  City  and 
St.  Louis  bureaus  have  secured  information  as  given  in 
the  annual  reports  of  the  former  127  in  Charles  H.  Talbot's 

1=^  See  p.  192-94  and  the  Pub.  Aff.  Inf.  Serv.  Bui.  p.  228-29,  supra. 
*-^  See  p.  52-53. 
'-^  See  p.  193. 

1"  Baltimore  —  Department   of  Legislative    Reference;     Annual 
Report,  1907-  date.     See  especially  1907,  p.  9;    1910,  p.  8-11;    1911 
p.  6-8.  ' 


328  Law,  Legislative  Reference  and 

paniplilet  entitled  "The  Municipal  Reference  Library 
as  a  Business  Investment,"  '-^  and  in  Dr.  Bostwick's 
Annual  Report  for  1911-1912,'-^  will  be  found  of  no  little 
value  in  other  libraries  of  this  type. 

(d)    Shelving  and  Filing  Methods. 

Books  are  readily  shelved  in  the  order  determined  by 
the  system  of  classification  and  the  call  number  of  the 
book.  The  same  can  be  said  for  pamphlets  in  binders 
which  are  treated  as  books,  and  for  pamphlets  if  kept  in 
pamphlet  boxes. 

X'ertical  filing  cabinets  will  be  found  convenient  in 
handling  loose  pamphlets,  leaflets,  clippings,  mounted  or 
in  en\elopes,  broadsides  and  unbound  material  generally. 
Cabinets  for  this  purpose  difter  from  those  designed 
primarily  for  filing  letters  flat  in  that  the  drawers  will  be 
higher  than  they  are  wide.  Preferences  differ  as  to  the 
actual  dimensions  most  desirable.  A  drawer  with  inside 
measurement  83^  inches  wide  by  11  inches  high  by  27 
inches  deep  will  accommodate  most  of  the  material  best 
filed  vertically,  though  for  such  things  as  the  current 
Census  Bulletins  a  drawer  10  inches  wide  and  12  inches 
high  would  be  needed.  Other  details  were  suggested 
in  the  legislative  reference  part  preceding. 

Suitable  shelving  can  be  obtained  from  a  number  of 
firms,  among  them  the  Art  Metal  Construction  Com- 
pany of  Jamestown,  N.  Y.,  the  Library  Bureau  of  New 
York,  Boston  and  Chicago,  and  the  Sneed  and  Co.  Iron 
Works,  Jersey  City,  N.  J. 

"*  Municipal  Reference  Library.  Kansas  City,  Mo.  8  p.  1912. 
See  p.  4-7. 

'»p.  111-12. 


Municipal  Reference  Libraries  329 

(e)     Preparing  and  Digesting  Data. 

A  kind  of  work  which  the  special  library  is  frequently 
called  upon  to  do  and  which  is  rarely  demanded  of  the 
general  reference  library  is  the  preparation  of  digests  or 
briefs  of  articles,  papers,  or  of  comparative  data  in  the 
shape  of  bulletins  or  otherwise  on  some  specific  subject. 

On  this  point  Dr.  Ford  H.  MacGregor  of  the  municipal 
reference  department  in  the  University  of  Wisconsin 
says: 

"I  have  found  this  a  particularly  difficult  problem  in 
connection  with  the  Municipal  Reference  Bureau  here. 

In  our  Debating  Department,  for  instance,  we  can  send 
out  traveling  libraries  made  up  of  thirty  or  forty  articles. 
Some  of  them  hit  the  nail  on  the  head,  but  others  only 
bear  upon  the  subject  indirectly.  We  find  that  debat- 
ing students  will  make  use  of  all  of  this  material,  but  in 
the  case  of  city  officials,  however,  all  the  work  of  digest- 
ing this  material  must  be  done  for  them.  If  thirty  or 
forty  articles  are  sent  out  to  them,  they  merely  glance 
through  them,  and  return  them  without  getting  much  of 
anything  out  of  them.  I  have  found,  therefore,  that  it  is 
necessary  for  me  to  make  reports  rather  than  send  them 
the  material  itself.  This  I  have  found  to  be  the  most 
difficult  part  of  the  work,  primarily  for  the  reason  that 
I  have  had  to  do  it  all  myself,  not  having  been  able  to 
find  even  among  our  graduate  students  more  than  one 
or  two  whose  work  I  could  accept  without  revision." 

It  is  indeed  true  that  such  work  is  not  only  very  neces- 
sary, but  that  the  individual  who  can  do  it  successfully 
is  the  exception  and  not  the  rule.  To  special  knowledge 
of  the  subject  in  hand  must  be  added  the  happy  faculty 
of  winnowing  the  wheat  from  the  chaff,  a  faculty  either 
inborn  or  developed  only  by  continued  and  conscien- 
tious effort  under  competent  guidance. 


330  Law,  Legislative  Reference  and 

Among  the  best  examples  of  this  kind  of  work  on  mu- 
nicipal problems  are  the  publications  of  the  municipal 
research  bureaus  and  efficiency  commissions  such  as 
have  been  issued  in  New  York,  Milwaukee,  and  Chicago, 
and  the  Comparative  Legislation  Bulletins  of  the  Wiscon- 
sin Legislative  Reference  Department  which  have  had 
to  do  with  municipal  topics. ^^° 

(f)     Drafting  Ordinances. 

In  drafting  ordinances  the  following  general  points 
must  be  kept  in  mind.  City  ordinances  must  not  be 
inconsistent  with  existing  federal  or  state  constitutional 
provisions,  with  state  law,  or  with  local  charter  provisions. 
They  must  be  passed  by  much  the  same  formula  as  that 
by  which  laws  are  passed  and  the  procedure  must  be 
legal  and  regular.  Ordinances  must  be  reasonable  and 
not  oppressive  and  they  must  not  make  unwarranted 
discriminations  nor  unreasonably  restrain  trade.  Just 
how  the  terms  "reasonable,"  "oppressive,"  "unwar- 
ranted discriminations,"  and  "unreasonable  restraint" 
are  understood  in  this  connection  will  be  learned  from 
the  decisions  of  courts  and  the  treatises  of  commenta- 
tors on  municipal  corporation  law  mentioned  a  few 
paragraphs  later. 

To  draft  ordinances  the  legality  and  constitutionality 
of  which  will  withstand  an  attack  in  the  courts  requires 
primarily  a  knowledge  of  municipal  powers  and  respon- 
sibilities, the  rules  of  charter  construction  and  interpre- 
tation, and  of  principles  and  practice  in  the  law  of  mu- 
nicipal corporations.  Not  all  of  those  now  entrusted 
with  this  responsibility  are  so  equipped."' 

'*  For  a  list  of  the  publications  of  the  New  York,  Chicago,  Mil- 
waukee, W'iscfmsin  ami  other  bureaus,  see  appendix. 
'"  Cf.  Munro,  op.  cil.,  p.  1S8-90. 


Municipal  Reference  Libraries  331 

Important  ordinances  are  frequently  drafted  by  the 
city  attorney,  or  at  least  reviewed  in  his  office,  but  the 
majority  are  formulated  without  due  regard  to  either 
a  knowledge  of  law,  fact,  or  probable  result  as  judged 
by  the  experience  of  other  cities.  A  part  —  and  an  im- 
portant part  —  of  the  work  of  a  municipal  reference 
library  should  be  to  assist  in  framing  measures  destined 
to  become  ordinances  in  proper  legal  form  and  in  language 
which  expresses  community  needs  in  the  light  of  com- 
parative experience. 

Literature  which  will  aid  in  drafting  ordinances  is  not 
as  abundant,  nor  in  as  convenient  a  form,  in  all  cases, 
as  could  be  wished.  There  are,  however,  a  few  eminent 
authorities  to  be  noted.  The  best  sources  are  Judge 
Eugene  McQuillin's  Treatise  on  the  Law  of  Municipal 
Corporations, ^^^  particularly  volume  one,  chapters  fifteen 
to  twenty-one,  and  Judge  John  F.  Dillon's  Commentaries 
on  the  Laws  of  Municipal  Corporations,^^^  chapters  fifteen 
and  sixteen  of  volume  two,  on  "Ordinances  and  By- 
laws" and  "Ordinances  exercising  the  police  power." 
Into  his  six-volume  work  cited  above  Judge  McQuillin 
has  incorporated  his  earlier  one-volume  treatise  on 
Municipal  Ordinances. ^^^  In  addition  to  these  two,  other 
writers  on  the  law  of  municipal  corporations  ^^^  consider 
this  subject  and  both  Munro^^''  and  Fairlie^"  discuss  briefly 
ordinances  and  ordinance  power. 

132  6  V.     Callaghan  &  Co.     Chicago.     1911-1913. 
»3'  Ed.  5.     5  V.     Little,  Brown  &  Co.     Bost.     1911. 
"^  1031  p.     Callaghan  &  Co      Chicago.     1904. 

135  See  p.  291-93,  infra. 

136  W.  B.  Munro,  Government  of  Amer.  Cities,  p.  84-93;  199-200; 
223-25;  329. 

13^  J.  A.  Fairlie,  Essays  in  Municipal  Administration,  p.  139-40. 


332  Law,  Legislative  Reference  and 

Cases  on  the  law  of  municipal  corporations  will  be 
found  in  Beale,'^*  Macy.^^^  and  Municipal  Corporation 
Cases,^*'^  and  cited  in  great  profusion  by  both  McQuillin 
and  Dillon  in  the  works  mentioned. 

4.     City  Council  Procedure. 

Tiie  procedure  followed  in  city  council  meetings  is 
similar  to  that  of  our  state  and  national  law-making 
bodies;  what  the  prescribed  procedure  may  be  in  a  given 
city  can  be  learned  from  the  "Council  Manual"  or  some 
equivalent  publication.  Each  council  and  each  branch 
of  a  bi-cameral  council,  unless  prescribed  by  charter, 
may  determine  the  procedure  by  which  it  officially  passes 
ordinances  and  resolutions,  provided  its  rules  do  not 
infringe  charter  provisions,  state  law,  or  constitutional 
requirements. 

As  a  general  thing  when  an  ordinance  is  introduced 
it  is  read  and  referred  to  a  committee,  later  reported 
out  with  recommendations,  read  a  second  time  and  dis- 
cussed, brought  up  on  a  third  reading,  voted  upon  finally, 
and,  when  passed,  must  be  signed  by  the  mayor,  recorded, 
and  published.  In  the  absence  of  specific  statutory, 
charter,  or  ordinance  provisions,  resort  must  be  had  to 
court  decisions  to  learn  whether  or  not  a  given  form  of 
procedure  is  legal  and  required. 

The  organization  of  a  city  council  may  be  prescribed 
in  the  city  charter  and  the  standing  committees  named 
therein.  However,  this  is  often  left  to  the  presiding 
officer  or  a  committee  on  committees.    The  small  weight 

'"  J.  H.  Bcale,  Selection  of  Cases  on  Municipal  Corporations.  Camb. 
1911. 

'"J.  E.  Macy,  Selection  of  Cases  on  Municipal  or  Public  Corpora- 
lions.     Bost.     1911. 
'♦•11  vols.,  1900-1904. 


Municipal  Reference  Libraries  333 

attached  in  most  instances  to  council  committee  reports 
in  this  country  is  in  strong  contrast  to  the  decisive  in- 
fluence of  such  reports  in  English  local  government. ^'*^ 

5.  Qualifications  of  a  Municipal  Reference 
Librarian ;  Attitude  toward  his  Work ;  Oppor- 
tunities for  Training. 

The  general  remarks  preceding  the  discussion  of  the 
proper  qualifications  of  a  legislative  reference  librarian 
are  applicable  in  large  part  to  a  similar  discussion  re- 
lating to  the  choice  of  a  municipal  reference  librarian. 
The  research  instinct,  taught  by  formal  training  to 
follow  logical  channels,  is  again  in  demand  and  that  a 
liberal  education,  followed  by  special  training  and 
study,  is  a  desired  prerequisite  is  seen  in  the  recommenda- 
tion of  the  National  Municipal  League  on  the  subject 
of  qualifications  for  the  head  of  a  municipal  reference 
library.  Its  recommendation  is  put  in  the  following 
language : 

"4.  That  the  qualifications  for  the  head  of  such  a 
library  should  be  a  liberal  education,  with  special  train- 
ing in  political  science,  economics,  municipal  govern- 
ment, and  methods  of  organization  and  administration, 
and  he  should  be  selected  for  merit  only."  ^^^ 

Anyone  called  to  such  a  position,  if  he  does  not  already 
have  the  information  as  a  part  of  his  natural  qualifica- 
tions for  such  a  position,  should  acquaint  himself  with 

"1  For  full  discussion  of  procedure  and  references  to  precedents,  see 
particularly  Dillon,  op.  cit.  v.  2,  sees.  575-579,585,603-607;  McQuillin, 
op.  cit.  V.  2,  chap.  15-16;  W.  B.  M.unTO,  Government  of  American 
Cities,  p.  195  ff;  John  A.  Fairlie,  "American  Municipal  Councils,"  in 
his  Essays  in  Municipal  Administration  (N.  Y.,  1908);  Frank  J. 
Goodnow,  Municipal  Problems,  chap.  9  (N.  Y.,  1907);  and  Good- 
now's  Municipal  Government,  chap.  11  and  authorities  there  cited 
(N.  Y.,  1910). 

^"  See  entry  under  Nat'l.  Mun.  League  Recommendations  in  item 
under  Flack,  p.  424. 


334  Law,  Legislative  Reference  and 

a  knowledge  not  only  of  the  duties  assigned  by  statute 
or  ordinance  to  city  officers,  but,  in  addition,  should 
be  as  familiar  as  possible  with  the  routine  duties  of  each 
employee  and  the  kinds  of  records  maintained  in  each 

office. 

In  regard  to  the  method  of  selecting  a  librarian  the 
National  Municipal  League  has  also  recommended  a 
definite  guiding  principle  of  general  application  as 
follows: 

"5.  That  the  head  of  the  municipal  reference  library 
be  selected  by  that  method  which,  in  the  particular  city, 
will,  under  the  local  conditions  there  prevailing,  tend 
most  completely  to  eliminate  political  considerations. 
In  some  cities  the  most  satisfactory  results  are  obtained 
by  lodging  the  appointing  power  with  the  public  librarian 
or  the  library  trustees.  In  other  cities,  conditions 
make  it  advisable  to  have  the  appointment  made  by  a 
select,  impartial  and  non-political  board." 

The  attitude  of  the  municipal  reference  librarian  must 
be  one  of  neutrality  on  all  questions;  the  scientific  truth 
is  his  aim.  As  an  advocate  he  will  lose  ground  and  im- 
pair his  department's  standing  and  reputation.  His 
personal  attitude  toward  his  clientele,  it  need  hardly 
be  said,  need  not  differ  from  that  of  any  other  man  who, 
confident  in  himself  and  his  resources,  means  to  put 
both  at  the  service  of  the  public  whom  it  is  his  duty  and 
his  privilege  to  serve.  Sufficient  reserv^e  to  maintain 
dignity  can  be  coupled  with  approachableness  and  an 
attitude  that  will  inspire  confidence  in  the  client. 

The  problem  of  selecting  a  qualified  staff  for  municipal 
reference  work  becomes  easier  the  greater  the  scale  on 
which  the  work  is  to  be  carried  on,  for  a  library  having 
adequate  financial  support  will  render  possible  a  division 
of   labor   in   which   ample  opportunity  wdll  be  afforded 


Municipal  Reference  Libraries  335 

to  both  the  professional  Hbrarian  and  the  expert  in 
municipal  government  to  utilize  their  several  abilities 
in  an  ideal  combination  for  maximum  efficiency  in  such 
work.  Where  less  financial  support  is  available  a  smaller 
staff,  and  frequently  but  one  or  two  people,  are  secured, 
who  are  called  upon  to  perform  a  variety  of  duties  each 
one  in  itself  requiring  special  preliminary  education  and 
experience. 

The  municipal  reference  branch  of  a  public  library  will 
be  relieved  of  much  of  the  routine  work  involved  in 
ordering  and  receiving  new  materials  and  in  preparing 
them  for  use  on  the  library's  shelves,  as  all  this  kind  of 
work  can  be  centralized  at  the  main  library  to  good 
advantage.  The  more  centralizing  there  can  be  of  such 
work  the  more  economically  will  it  be  done  as  a  general 
rule.  Though  relieved  of  a  certain  kind  of  routine  in 
this  way  the  library  should  have  a  staff  sufficient  to 
enable  it  to  keep  up  with  the  current  publications  of  all 
kinds  relating  to  its  work  and  to  send  out  requests  for 
such  of  the  fugitive  material  as  is  of  value  but  not  likely 
to  be  secured  unless  specially  requested. 

In  addition  to  a  branch  librarian,  therefore,  such  a 
municipal  reference  library  will  be  able  to  occupy  the 
time  of  at  least  one  assistant  and  a  stenographer.  The 
municipal  reference  bureau  or  library  which  is  a  separate 
department  having  no  connection  with  a  public  library 
should  have  a  staff  sufficient  to  handle,  in  addition,  all 
the  work  that  in  other  cases  can  best  be  done  in  the 
central  administrative  offices  of  a  large  library  system. 
The  scale  on  which  work  is  undertaken  and  the  available 
funds  will  of  course  be  factors  in  determining  the  num- 
ber of  persons  employed  in  a  given  library  and  the 
character  of  the  staff  organization.     A  staff  of  three. 


336  Law,  Legislative  Reference  and 

librarian,  cataloguer,  and  stenographer  would  be  the 
minimum  for  effective  work  even  on  a  small  scale. 

Opportunities  to  receive  a  training  which  would  pre- 
pare for  municipal  reference  work  are  presented  by  sev- 
eral different  agencies  no  one  of  which,  however,  makes 
municipal  reference  work  either  its  primary  or  its  only 
aim.  The  fundamental  training  needed  in  the  facts 
and  theories  of  municipal  government  and  administra- 
tion can  best  be  obtained  through  the  courses  in  these 
subjects  given  in  colleges  and  universities  to  both 
graduate  and  undergraduate  students.  If  to  the  knowl- 
edge thus  acquired  are  added  courses  in  city  problems 
from  the  sociological  standpoint,  and  on  municipal  cor- 
porations and  public  service  corporations  from  the  legal 
point  of  view,  the  best  preliminary  academic  training  will 
have  been  received.  Students  preparing  for  municipal 
reference  work  in  universities  maintaining  municipal 
research  bureaus  or  municipal  reference  libraries  will 
include  in  their  courses  on  municipal  government  prac- 
tice work  in  these  bureaus. 

Recently,  two  or  three  more  specializing  agencies  have 
offered  opportunities  which  should  take  the  student  a 
little  beyond  the  point  reached  at  present  even  by 
graduate  work  in  most  universities.  The  first  is  the 
College  of  the  City  of  New  York,  for  which  the  city 
authorities  remodelled  a  building  at  an  expense  of 
$60,000  with  the  understanding  that  the  trustees  will 
there  maintain  a  permanent  municipal  budget  exhibit 
and  will  so  modify,  develop,  and  systematize  their  present 
courses  in  municipal  government,  administration  and 
sanitation  that  graduates  will  be  well  equipped  to  under- 
take even  the  higher  and  more  technical  positions  in  the 


Municipal  Reference  Libraries  337 

municipal  world  with  an  assurance  to  the  city  of  success 
and  efificient  service. ^^^ 

In  this  New  York  is  following  certain  German  cities, 
notably  Diisseldorf/^*  in  developing  a  school  for 
thoroughly  training  men  for  the  municipal  public  service. 

Another  new  venture  is  the  Training  School  for  Pub- 
lic Service  conducted  by  the  Bureau  of  Municipal  Re- 
search of  New  York  City.  This  school,  founded  by 
Mrs.  E.  H.  Harriman  in  co-operation  with  thirty-one 
leading  citizens  of  New  York,  aims 

"To  promote  efificient  and  economical  government; 
to  promote  the  adoption  of  scientific  methods  of  account- 
ing and  reporting  the  details  of  municipal  business,  with 
a  view  to  facilitating  the  work  of  public  officials;  to 
secure  constructive  publicity  in  matters  pertaining  to 
municipal  problems;  to  collect,  to  classify,  to  analyze, 
to  correlate,  to  interpret,  to  publish  facts  as  to  the  admin- 
istration of  municipal  government."  ^*^ 

The  methods  are  by  supervised  field  work  done  where- 
ever  the  best  experience  can  be  obtained  and  through 
staff  conferences  similar  in  nature  to  graduate  seminar 
discussions.  The  Announcement,  1911,  of  this  school  will 
for  some  time  hold  a  unique  place  in  the  educational 
literature  of  this  country. ^^'^ 

143  "New  York  City's  Permanent  Municipal  Museum"  in  Nat. 
Mun.  i?CT.  1:733,  Oct.,  1912; 

"^  "Dusseldorf's  Municipal  College"  in  Nat.  Mun.  Rev.  1:  306-07, 
Apl.,  '12  and  "The  New  Academy  of  Municipal  Administration  in 
Diisseldorf,"  Nat.  Mun.  Rev.  2:  501-2,  July,  1913,  a  review  of  the 
Academy's  first  annual  report. 

"^Bureau  of  Municipal  Research  —  Training  School  for  Public 
Service,  Announcement,  1911,  p.  2. 

"®  See  further,  William  H.  Allen,  "Training  Men  and  Women  for 
Public  Service,"  in  Annals  of  the  American  Academy  of  Political 
and  Social  Science,  May,  1912,  p.  307-12;  also  his  "Instruction  in 
Municipal  Afifairs"  in  Nat.  Mun.  Rev.  1:  305-06,  April,  1912. 


338  l-aw,  Legislative  Reference  and 

Training  is  now  afforded  by  numerous  library  schools  in 
the  many  processes  and  methods  which  must  be  em- 
ployed in  all  general  libraries  to  render  efficient  service 
in  the  various  departments  of  the  library.  These 
methods  must  be  employed  by  one  who  would  give  the 
best  results  as  a  municipal  reference  librarian  and  there 
is  no  training  even  in  university  graduate  study  which 
takes  the  place  of  the  courses  in  general  and  advanced 
reference  work,  government  documents,  and  bibliography 
offered  in  the  best  library  schools. 

That  library  schools  are  beginning  to  provide  some 
special  training  for  those  who  care  to  plan  for  municipal 
reference  library  work  was  shown  in  the  discussion  of  like 
facilities  now  afforded  at  some  of  these  schools  for  train- 
ing in  legislative  reference  work.  In  recent  years  the 
subject  has  been  treated  in  a  few  lectures  to  the  students 
of  the  New  York  State  Library  School  at  Albany,  New 
York,  while  at  the  University  of  Illinois  the  Seniors  in 
the  Library  School  have  had  presented  to  them  in 
lecture  form  the  materials  which  have  been  expanded 
into  the  present  work.  Specimens  of  the  problems  which 
accompanied  the  lectures  in  the  latter  institution  are 
given  in  the  appendix."'' 

The  course  in  special  library  work  known  officially 
as  "Library  Administration  and  Public  Service,"  was 
first  announced  by  the  Library  School  of  the  University 
of  Wisconsin  for  the  academic  year  1913-14.  Open  only 
to  university  graduates  who  are  taking  advanced  work  in 
other  departments  of  the  University  it  offers  to  anyone 
{planning  to  work  in  a  municipal  reference  library  an 
e-xcellent  opportunity  to  acquire  both  theoretical  and 
practical  training  to  an  unusual  degree.     In  the  former 

•«  See  apx.,  p.  :i46-47;  402;  431-33. 


Municipal  Reference  Libraries  339 

case  the  opportunity  is  provided  by  the  courses  at  the 
university  in  municipal  government  and  administration, 
and  in  the  latter,  in  addition  to  the  practical  side  of 
these  same  courses,  an  opportunity  to  work  in  the  Wis- 
consin municipal  reference  library  under  the  direction  of 
Dr.  Ford  H.  MacGregor,  librarian,  and  member  of  the 
political  science  faculty.  As  this  library  serves  as  a 
bureau  of  municipal  information  for  all  the  cities  of  the 
state,  the  laboratory  practice  thus  provided  is  exceptional. 
The  legislative  reference  library  at  the  capitol  presents, 
of  course,  additional  facilities  for  studying  municipal 
problems  in  their  legislative  aspects. 

6.     General  Success  of  Libraries  now  Established 
and  Present  Support  Given. 

Testimony  as  to  the  success  enjoyed  by  municipal  ref- 
erence libraries  as  well  as  by  bureaus  of  municipal 
research  is  abundant  and  this,  coupled  with  the  fact  that 
they  have  accomplished  much  with  small  financial  sup- 
port, should  go  a  long  way  in  arguing  for  their  further 
development  both  in  numbers  and  in  individual  resources. 
Witness  the  following  statements.  Dr.  Horace  E.  Flack, 
Executive  of  the  Baltimore  legislative  reference  depart- 
ment, in  his  Annual  Report  to  the  mayor  and  city 
council,  1911,  says: 

"The  year  1911  has  shown  very  gratifying  evidence 
of  the  growing  utility  of  this  department.  The  depart- 
ment has  been  used  more  frequently  during  the  past 
year  than  ever  before  by  members  of  the  city  council, 
city  officials  and  the  public  generally."  And  after  enum- 
erating some  seventy-five  of  the  important  topics  on 
which  information  was  requested.  Dr.  Flack  notes  that 
the  department  not  only  received  but  compiled  informa- 


340  I-aw,  Legislative  Reference  and 

tion  on  numerous  additional  subjects  such  as  a  history 
of  improved  paving  in  Baltimore,  liquor  license  fees  in 
the  counties  and  towns  of  Maryland,  taxable  basis  and 
rates  in  other  cities,  sewers,  rentals,  etc.  The  total  ex- 
penditures for  1911  were  83,573.82  and  the  department 
sent  out  over  4,000  communications  either  requesting 
or  giving  information. 

Mr.  Charles  H.  Talbot,  formerly  municipal  reference 
librarian  in  Kansas  City,  in  The  Municipal  Reference 
Library  as  a  Business  Investment,  includes  among  the 
special  investigations  made  by  his  department,  building 
inspection  in  other  cities,  the  division  of  costs  in  eliminat- 
ing railway  grade  crossings,  license  tax  ordinances, 
car  stops,  cost  of  collecting  and  handling  taxes,  smoke 
abatement,  pawnbrokers,  taxation  of  goods  in  storage, 
auditing  of  the  city  accounts,  garbage  collection  and  dis- 
posal, public  playgrounds,  municipal  morgues,  gaspipe 
inspection  etc.,  etc.  The  article  says  forcibly,  "there  is  no 
reason  why  Kansas  City  should  try  a  costly  experiment 
which  has  been  shown  to  have  failed  when  tried  in 
other  cities  with  similar  circumstances  and  conditions." 

The  expenditures  in  Kansas  City  for  1911  were  approx- 
imately $3,000  of  city  funds,  a  sum  w^hich  was  supple- 
mented generously  by  one  of  Kansas  City's  prominent 
citizens.  Much  to  the  point  is  Mr.  Talbot's  further 
statement.  "Attention  is  respectfully  called  to  the  fact 
that  the  information  revealed  by  one  report  made  by  this 
department,  if  taken  advantage  of  by  the  city  officials, 
would  result  in  a  saving  to  the  city  and  the  people  con- 
servatively estimated  at  $125,000  a  year.^^^  Considered 
simply  as  a  business  investment,  the  Municipal  Reference 
Library  of   Kansas  City   more   than   pays   for   itself." 

'*'  la  regard  to  a  Municipal  Lighting  Plant. 


Municipal  Reference  Libraries  341 

In  another  address  Mr.  Talbot  says,  "Already,  I 
believe,  the  work  we  are  doing  has  had  an  effect  upon 
legislation,"  and  this  was  but  within  two  years  of  the 
establishment  of  the  library. 

Success  has  attended  the  departments  in  Milwaukee, 
St.  Louis,  and  other  cities  and  in  every  case  the  appro- 
priation has  been  indeed  moderate;  Baltimore  (1911) 
$3,573.82,  Kansas  City  $3,000,  Milwaukee  $5,000, 
Chicago  $6,242  (1913). 

If  to  this  may  be  added  the  testimony  of  results  ac- 
complished by  bureaus  of  municipal  research  and  effi- 
ciency commissions,  which  have  much  in  common  with 
municipal  reference  libraries  and  in  all  cases  could 
utilize  their  collections,  this  record  will  be  considerably 
enhanced.  For  example,  in  Six  Years  of  Municipal 
Research  for  New  York  City,^*^  the  figures  for  money 
saved  run  well  up  into  the  millions.  The  Cincinnati 
bureau  in  the  "Foreword"  of  its  first  report  notes  how 
$50,000  might  have  been  saved  the  city  by  following 
only  one  of  the  bureau's  recommendations.  Philadelphia, 
Boston,  Chicago,  and  Milwaukee  are  among  the  other 
cities  which  could  contribute  to  such  a  symposium  as 
this.  Space  forbids  further  details,  but  attention  must 
be  called  to  Dr.  Jesse  D.  Burk's  "Efficiency  Standards 
in  Municipal  Management,"  ^^°  the  Milwaukee  Bureau  of 
Economy  and  Efficiency's  Eighteen  Months'  Work,^^^  Prof. 
Edward  M.  Salt's  "Research  and  Reference  Bureaus,"  ^^^ 
and  to  the  volume  of  the  Annals  of  the  American 
Academy  of  Political  and  Social  Science  for  May,  1912, 

"'  Pub.  by  Bur.  of  Mun.  Research,  261  Broadway.  80  p.  1912. 
(See  p.  10-13). 

150  Nal.  Mun.  Rev.  1:  364-371,  July,  1912. 
''■1  Bulletin  19,  especially  p.  12-16  and  21-22. 
162  Nat.  Mun.  Rev.  2:  48-56;  Jan.,  1913. 


342  Law,  Legislative  Reference  and 

on  Efficiency  in  City  Government,  particularly  part  three, 
"Bureaus  of  Municipal  Research. "i"  In  all  will  be  found 
additional  testimony  as  to  the  practical  worth  of  these 
allied  agencies  for  civic  progress. 

7.     Future  Possibilities:  Co-operation;  An  Official 
National  Bureau;  An  International  Bureau. 

The  future  should  see  great  development  in  municipal 
reference  work,  a  work  still  decidedly  in  the  formative 
period,  but  one  which  has  already  given  grounds  for  a 
belief  in  a  future  of  large  and  as  yet  unexploited  possi- 
bilities. 

In  the  field  of  library  science  a  classification  accepta- 
ble to  all  municipal  reference  librarians  is  still  a  desid- 
eratum; so  also  is  a  standard  guide  for  assigning  sub- 
ject headings,  two  things  which  will  aid  in  bringing  about 
a  desirable  uniformity  in  technical  matters.  Further 
co-operation  must  develop  a  systematic  exchange  of 
information  between  municipal  reference  libraries  as 
to  the  special  resources  of  each,  particularly  in  the  field 
of  MS  material,  bibliographical  and  comparative  data, 
and  matters  under  investigation  or  already  investigated 
by  the  several  libraries.  A  definite  step  in  this  direction 
was  taken  when  Mr.  Lapp  succeeded  in  drawing  into 
the  co-operative  scheme  earlier  described  a  number 
of  legislative  and  municipal  reference  libraries,  and  other 
institutions  interested  in  this  work.  Check-lists  of  the 
documents  of  individual  cities,  annotated  bibliographies 
on  specific  municipal  problems,  including  important 
documentary  data,  are  greatly  needed.  Compilations 
of  the  ordinances  of  a  number  of  cities  on  single  sub- 
jects, edited  with  historical,  descriptive,  and  evaluative 

'"  p.  235-78,  describing  the  New  York,  Philadelphia,  Cincinnati, 
and  .Milwaukee  bureaus. 


Municipal  Reference  Libraries  343 

notes  are  practically  unknown,  though  they  would  form 
a  class  of  material  of  inestimable  worth  in  municipal 
reference  work.  And  the  list  of  desiderata  could  easily 
be  extended. 

Some  of  those  who  believe  that  from  an  economic 
standpoint  the  city  is  the  greatest  problem  confronting 
the  nation  today,  have  urged  the  creation  of  a  national 
bureau,  or  commission,  or  even  a  Department  of  Mu- 
nicipalities. This  is  one  of  the  possibilities  of  the  future. 
It  has  been  urged  by  the  National  Municipal  League 
and  its  case  is  well  presented  by  Philip  Kates  in  his 
article  entitled  "A  National  Department  of  Municipali- 
ties."i54  Going  still  further,  W.  D.  Lighthall,  K.  C, 
Honorary  Secretary  of  the  Union  of  Canadian  Munici- 
palities, has  proposed  an  International  Municipal 
Congress  and  Bureau  ^*^  to  include  existing  national, 
state,  and  local  associations  of  all  countries  and  repre- 
sentatives of  cities,  governments,  and  universities,  and 
eminent  students  of  political  science.  Such  national  and 
international  bureaus  as  these  proposed  in  the  interests 
of  municipal  government  would  most  naturally  benefit 
cities  through  a  local  co-operating  agency.  This  agency 
would  logically  be  the  local  municipal  reference  library. 

1"  Kates,  Philip,  "A  National  Department  of  Municipalities:  Why 
Should  Congress  Create  Such  a  Department  for  the  Study  of  Munic- 
ipal Conditions  at  Home  and  Abroad,"  in  The  American  City  6: 
405-07,  Jan.,  1912. 

For  editorial  comment  of  the  above  by  the  Hon.  John  Mac  Vicar, 
the  Hon.  William  Dudley  Foulke,  and  J.  Horace  McFarland,  see 
the  same  issue,  p.  395-96. 

Additional  comment  will  be  found  in  "How  the  Federal  Govern- 
ment now  Co-operates  with  Municipalities."  American  CityG:  408- 
10,  Jan.,  1912,  and  by  Frank  A.  Wolff,  "The  Federal  Government 
as  a  Potential  Contributor  of  Municipal  Advancement,"  in  Eigh- 
teenth Annual  Meeting  of  the  Nat.  Mun.  League  Proceedings,  pub- 
lished as  appendix  to  the  Nat.  Mun.  Rev.  Jan.,  1913,  apx.,  p.  33-35. 

165  \Y.  D.  Lighthall,  "An  International  Municipal  Bureau,"  in 
Nat.  Mun.  Rev.  1:  78-79,  Jan.,  1912;  additional  notice  in  the  Jan., 
1913,  issue,  p.  135. 


APPENDIX. 


I.    Law  Libraries. 

1.  A  Reading-list  on  Law  Library  Work. 

2.  Suggested  Class  Problems  on  Law  Library  Work. 
IL    Legislative  Reference. 

L     Compilation   of   Laws   establishing   Legislative    Reference 
Bureaus  in  the  Various  States. 

2.  Laws  relating  to  other  Official  Bill-drafting  Agencies. 

3.  List  of  Publications  issued  by  Legislative  Reference  Depart- 

ments, by  Grace  Sherwood;  Tabular  Statement  of  Legis- 
lative Reference  Work  in  the  several  states,  by  Irma  A. 
Watts. 

4.  Bibliography  of  Legislative  Reference  Work. 

5.  Bibliography  of  Bill-drafting. 

6.  Suggested  Class  Problems  on  Legislative  Reference  Work. 
111.    Municipal  Reference. 

1.  Ordinances   and    Laws   relating   to    Municipal    Reference 

Work. 

2.  List  of  Publications  of  Bureaus  of  Municipal  Research  and 

Municipal  Reference  Libraries. 

3.  Municipal  Reference  Libraries  and  Research  Bureaus  — 

a  Bibliography. 

4.  Suggested  Class  Problems  in  Municipal  Reference  Work. 


I.     LAW   LIBRARIES. 

L     A  READING  LIST  ON  LAW  LIBRARY  WORK. 
General. 

L     Gilbert,  F.  B. :    "Special  Functions  of  a  Law  Library."     (In 
A.  L.  A.  Bui.  July,   1907.     v.  1,  p.  92-96.     Summary  in 
Library  Work.     April,  1908,  p.  43. 
Indexes. 

2.  "Available  Published  Indices  to  Legal  Literature."     (A.  L.  A. 

Bui.     V.  1,  p.  252-4,     July,  1907.) 

3.  "Report  on  the  Index  to  Legal  Periodicals."     (A.  L.  A.  Bui. 
^^  4:754-6,  Sept.  1910.) 

4.  "Index   to   the   Legal   Periodicals."     {Law  Library  Journal, 

V.  3,  p.  16-18,  Oct.  1910.) 

Describes  the  Index  to  Legal  Periodicals. 


34G  Appendix 

Handling  of  Material. 

5  Adams.  E.  D.:  "Constructing  a  Catalogue."  (L.  L.  J.  v.  3, 
p.  35-8.     1911. 

6.  Emerioh:  '"Recent  Experiments  in  Cataloguing  the  Alle- 
gheny County  Law  Librar>'."     (L.  L.  J.  v.  3:  41-i4.) 

7  Berr\',    \V.   J.   C:     "Law   Classification   under   the   Author 

Ar'rangement."     (A.  L.  A.  Bu/.  v.  1:  257-8.     July.  1,907.) 

8  Classification  of  Law  at  the  University  of  California."     (L. 

J.  V.  31.  p.  147-8.     March,  1906.) 
9.     Sage,  L.  H.:  ".Arrangement  of  Law  Books."     (A.  L.  \.  Bui. 
2:  296-8,  Sept.   1908.     Summary  in  Library  Work,  Jan. 
1909.     p.  191. 

10.  Wire.  G.  E.:    "Subject  Classification  of  Text  Books."     (A. 

L.  h.Bul.  1:258-60.) 

11.  Baker.  H.  G.:    "leaning  Law  Books."     {L.  L.  J.  v.  4:  2-3.) 

April.  1911. 

12.  Wire,  G.  E.:    "Loaning  Books  from  Law  Libraries."     (L.  L. 

y.  V.  4:  1-2. 

Review. 

13.  "Management  of  the  Small  Law  Library.  '     (Z-.  L.  J.  v.  2: 

1-6.) 

(Gives  consensus  of  opinion  on  various  problems  as  shown 

by  answers  to  questionnaire.)      By  C.   H.  Smith  and 

H.  G.  Baker. 

(In  addition  to  the  references  to  articles  in  library  journals  noted 

above,  students  of  the  Library'  School  are  advised  to  read  all  and 

required  to  read  certain  sections  of  part  one  of  Brief  Making  and  the 

Use  of  Law  Books.  ') 

2.     SUGGESTED   CLASS   PROBLEMS   ON    LAW    LIBRARY 

WORK. 

UNIVERSITY  OF  ILLINOIS  LIBRARY  SCHOOL. 
Law  Library  Work:  Problem  I. 

1.  Find  the  case  of  "The  City  of  Peru  v.  W.  C.  Bartels.  et  al." 

2.  In  what  cases  subsequently  decided  in  the  same  state  has  this 

case  been  cited? 

3.  Where  will  you  find  references  to  other  cases  involving  the 

same  question? 

4.  Where  will  you  find  digested  the  latest  Illinois  cases  on  "Wills?" 

5.  An  atto.-ney  wishes  the  case  in  214  111.  318,  but  214  111.  is  out. 

How  will  you  get  him  the  case  in  some  other  publication, 
the  title  of  the  case  being  unknown? 

6.  What  is  a  syllabus?     Who  writes  it?     Is  it  authority?     What 

is  meant  by  "ex  parte"?     By  "ex  rel"? 

'  Ed.  2,  edited  by  Roger  W.  Cooley,  West  Pub.  Co.,  St.  Paul,  Minn. 
1909. 


Appendix  347 

Law  Library  Work:  Problem  IL 

1.  Find  the  case  in  the  original  state  report  of  "Patrick  Ducey 

V.  Thomas  M.   Patterson,  given  in  9  L.   R.  A.  n.s.   1066. 
Locate  this  case  in  4  different  pubHcations. 

2.  Find  "Simonin  (f.c.  Maliac)  v.  Mallac,"  and  write  out  in  full 

the  titles  of  the  4  sources  in  which  it  has  been  published. 

3.  Name  the  series  making  up  the  National  Reporter  System. 

4.  What  is  a  "quizzer"?     A  "case-book"?     A  "citator"  or  cita- 

tion book?     What  are  "Dicta"? 

5.  Write  out  the  following  abbreviations : 
3  B.  &  P.  R. 
Cowp.                                           Reg. 

L.  R,  2  C.  C.  R.  30  O.  L.  190 

1  St.  Tr.  1195  30  O.  190 

2  Den.  448  30  O.  S.  190 
Co.  Lit.  30  S.  L.  190 

et  al  2-3  Ed.  6.  c.  37. 

II.     LEGISLATIVE  REFERENCE. 

1.     COMPILATION  OF  LAWS  ESTABLISHING  LEGISLATIVE 

REFERENCE  BUREAUS  IN  THE  VARIOUS  STATES. 

ALABAMA.^ 

(General  acts  1907,  No.  255,  p.  318.) 

An  Act  to  enlarge  the  duties  of  the  department  of  archives  and 

history. 
Be  it  enacted  .  .  .  That  in  addition  to  the  duties  now  required 
by  law,  the  department  of  archives  and  history  shall  do  and  perform 

the  following: 

*  *  *  *  *  *  * 

2.  It  shall  bind  together  and  arrange  for  ready  consultation  a 
reference  collection  of  materials  for  the  use  of  the  members  of  the 
legislature.  State  officers,  and  others  on  all  subjects  which  may,  from 
time  to  time,  be  deemed  of  public  interest  and  importance  to  the 
people  of  the  State. 

Approved,  March  5,  1907. 

GEORGIA. 
A  Resolution. 
Relative  to  a  Legislative  Reference  Bureau. 
No.  18,  (1913.) 
Whereas,  The  members  of  the  General  Assembly  of  Georgia 
are  often  in  need  of  accurate  information  relating  to  proposed  legis- 
lation and  matters  pertaining  to  the  welfare  of  the  State;  and. 

Whereas,  There  is  not  now  in  the  State  a  reference  library  or 
place  where  such  information  may  be  quickly  had;   and. 

Whereas,  The  Congress  of  the  United  States  and  the  General 
Assemblies  of  many  of  the  States  of  the  Union  have  created  Legisla- 

^  An  exceedingly  simple,  general  law. 


348  Appendix 

live  Reference  Bureaus  for  the  purposes  of  supplying  such  informa- 
tion; . 

Be  it  resolved  by  the  House  of  Representatives,  the  Senate  con- 
curring, ,      /- 

1.  That  a  Commission  of  five  be  appomted  by  the  Governor 
to  investigate  the  workings  of  the  legislative  reference  bureaus  of 
other  states,  and  report  to  the  next  session  '  of  the  General  Assembly 
its  opinions  and  findings  as  to  the  advisability  of  establishing  such  a 
bureau  in  Georgia,  the  probable  cost  of  installing  and  operating 
and  other  matters  pertinent  thereto. 

2.  That  the  State  Librarian  and  at  least  one  member  from  each 
the  House  and  Senate,  be  members  of  said  Commission. 

3.  That  the  Members  of  said  Commission  shall  serve  without 
expense  to  the  State. 

Approved  August  19,  1913. 

ILLINOIS.-" 

(Illinois  Laws,  1913,  p.  391-92.) 

An  Act  to  Establish  a  Joint  Legislative  Reference  Bureau  and   to 

define  the  powers  and  duties  thereof. 

Sec.  1.  Be  it  enacted  .  .  .  That  there  be  and  is  hereby  established 
a  joint  legislative  reference  bureau  composed  of  the  Governor,  the 
chairman  of  the  committees  on  appropriations  of  the  Senate  and  of 
the  House,  the  chairman  of  the  committees  on  judiciary  of  the 
Senate  and  of  the  House.  The  Governor  shall  be  ex-officio  chairman 
of  said  reference  bureau. 

Sec.  2.  The  Governor  shall  serse  as  a  member  of  said  Reference 
Bureau  during  the  term  of  office  for  which  he  shall  have  been  elected, 
and  those  members  serving  on  said  Reference  Bureau  by  virtue  of 
being  chairmen  of  committees  of  either  House  shall  serve  until  the 
convening  of  the  next  General  Assembly  after  their  appointment. 

Sec.  3.  The  said  Reference  Bureau  shall  meet  during  the  regular 
and  special  sessions  of  the  General  Assembly  and  during  the  intervals 
between  the  regular  sessions,  and  at  such  times  and  places  as  it  may 
determine.  The  members  of  the  Bureau  shall  receive  no  compensa- 
tion for  their  services  as  members  thereof,  but  shall  be  allowed  their 
actual  and  necessar>'  expenses  incurred  in  the  performance  of  their 
official  duties  out  of  any  money  appropriated  for  the  use  of  the  said 
Reference  Bureau. 

Sec.  4.  The  said  Reference  Bureau  shall  appoint  a  secretary,  who 
shall  devote  his  entire  time  to  the  duties  of  his  office  and  shall  follow 
no    other    gainful    profession,    occupation    or    employment.     The 

» October,  1914. 

*  Notice  the  direct  connection  with  the  legislature  and  especially 
the  duties  assigned,  i.e.,  a  weekly  digest  of  current  Illinois  legis- 
lation, bill-drafting,  and  budget  making.  See  Independent,  73: 
641-42  Sept.  11,  1913,  p.  641-42,  and  Public  Libraries,  19:  59-64 
February,  1914,  for  work  planned  and  criticism. 


Appendix  349 

Reference  Bureau  shall  also  appoint  such  other  officers,  agents  and 
employees  as  may  be  necessary  to  carry  out  the  provisions  of  this 
Act,  and  shall  fix  the  compensation  of  each  of  its  appointees:  Pro- 
vided, the  salary  of  the  secretary  be  fixed  at  a  sum  not  to  exceed  five 
thousand  dollars  ($5,000)  per  annum. 

Sec.  5.  It  shall  be  the  duty  of  said  Reference  Bureau:  a.  To 
establish  in  the  State  Capitol  a  Reference  Bureau,  which  shall  be 
open  daily,  excepting  Sundays  and  legal  holidays,  in  which  shall  be 
collected  and  kept,  in  such  manner  as  may  make  the  same  readily 
accessible,  such  laws,  reports,  books,  periodicals,  documents,  cata- 
logues, check-lists,  digests,  summaries  of  the  laws  of  other  states 
upon  current  legislation,  and  such  other  printed  or  written  matter 
as  may  aid  the  members  of  the  General  Assembly  in  the  performance 
of  their  official  duties: 

b.  The  reference  Bureau  shall  collect,  catalogue,  classify,  index, 
completely  digest,  topically  index,  check-list  and  summarize  all 
bills,  memorials,  resolutions  and  orders,  as  well  as  substitutes  and 
amendments  and  changes,  if  any,  introduced  in  each  branch  of  the 
General  Assembly,  as  soon  as  practicable  after  the  same  shall  have 
been  printed,  and  shall  furnish  copies  of  the  digest  indexed  and 
topically  indexed  to  each  member  of  the  General  Assembly  on  Mon- 
day of  each  week  during  the  session  of  the  General  Assembly: 

c.  The  said  Reference  Bureau  shall  afford  to  any  member  of  the 
General  Assembly,  upon  his  request,  such  legal  assistance  and  in- 
formation as  may  be  practicable  in  the  preparation  of  bills,  mem- 
orials, resolutions,  orders  and  amendments,  alterations,  changes 
thereto,  and  revisions  and  substitutes  thereof,  proposed  to  be  intro- 
duced into  the  General  Assembly  by  said  member: 

d.  To  cause  to  be  prepared,  printed  and  distributed  for  the  use 
of  the  rnembers  of  the  General  Assembly,  a  detailed  budget  of  the 
appropriations  which  the  officers  of  the  several  departments  of  the 
State  Government  report  to  it  are  required  for  their  several  depart- 
ments for  the  biennium  for  which  appropriations  are  to  be  made  by 
the  next  General  Assembly,  together  with  a  comparative  statement 
of  the  sums  appropriated  by  the  preceding  General  Assembly  for 
the  same  purposes. 

Sec.  6.  The  officers  of  the  several  departments  of  the  State 
Government  shall  make  duplicate  reports  by  the  first  day  of  Novem- 
ber next  preceding  the  convening  of  the  next  regular  session  of  the 
General  Assembly  of  the  appropriations  which  are  required  for  their 
several  departments  for  the  biennium  for  which  appropriations  are 
to  be  made  by  such  General  Assembly.  One  of  said  duplicate 
reports  shall  be  filed  with  the  Governor,  and  the  other  with  the 
secretary  of  said  Reference  Bureau. 

Sec.  7.  The  Secretary  of  State  shall  provide  said  Reference 
Bureau  with  suitable  offices  in  the  State  Capitol,  convenient  to  the 
place  of  meeting  of  the  General  Assembly,  and  shall  further  provide 
said  Reference  Bureau  with  the  necessary  furniture,  stationery  and 
supplies. 


350  Appendix 

Sec.  8.  The  Board  of  Commissioners  for  the  management  of  the 
of  ^he  State  Library  shall  co-operate  with  the  said  Reference  Bureau 
and  shall  make  the  facilities  of  said  library  accessible,  so  far  as  prac- 
ticable, for  the  use  of  said  Reference  Bureau,  and  are  hereby  authorized 
to  loan  to  said  Reference  Bureau  any  books,  periodicals,  documents, 
reports  or  other  printed  or  written  matter  belonging  to  said  library. 

Sec.  9.  All  proper  expenses  incurred  by  said  Reference  Bureau 
shall  be  paid  out  of  the  appropriations  made  for  its  use  upon  itemized 
vouchers   drawn  by  the  secretary  and  approved  by  the  Governor. 

Approved  June  26,  1913.* 

INDIANA.* 
(Indiana  Acts,  1913,  p.  694-696.) 

A.N'  -Act  to  establish  a  bureau  of  legislative  and  administrative 
information  for  the  purpose  of  gathering,  digesting,  and  indexing 
material  for  the  use  of  the  legislature,  and  public  officials,  boards, 
commissions,  and  institutions  and  to  provide  for  the  preparation 
and  drafting  of  legislative  bills. 

Sec.  1.  Be  it  enacted  .  .  .  That  there  shall  be  created  a  legis- 
lative and  administrative  reference  bureau  which  shall  be  under  the 
control  of  the  Ixsard  consisting  of  the  governor,  state  librarian,  pres- 
ident of  Indiana  university,  president  of  Purdue  university,  and 
one  additional  member  appointed  by  the  governor  for  a  term  of 
four  years. 

Sec.  2.  The  Board  shall  appoint  a  director  of  the  bureau  who 
shall  have  thorough  training  and  experience  in  the  principles  of 
government  and  political  science,  constitutional  and  administrative 
law,  and  in  the  drafting  of  .statute  law.  The  salary  and  term  of  office 
of  the  director  shall  be  fixed  by  the  board.  The  director  and  any 
assistant  may  be  removed  for  cause  by  the  board. 

Sec.  3.  The  director  shall  with  the  approval  of  the  board  appoint 
("urh  assistants,  investigators,  and  draftsmen  as  may  be  necessary 
and  fix  their  compensation.  The  bureau  shall  gather  material 
hearing  on  legislation  and  administration  for  the  use  of  the  legislature 
and  state  officers,  boards,  commissions,  and  institutions. 

It  shall  be  the  duty  of  the  bureau  to  arrange  and  index  all  material 
so  as  to  be  most  readily  used.  It  shall  obtain  and  furnish  to  members 
of  the  tieneral  .Assembly  or  officers,  boards  or  commissions  any  data 
available  regarding  the  laws  of  this  and  other  states  and  the  workings 
and  administration  of  such  laws,  together  with  references  to  judicial 
decisions  and  interpretation  upon  such  laws. 

It  shall  be  prepared  to  furnish  to  members  of  the  General  Assembly 
and  under  their  instruction  such  assistance  as  may  be  demanded  in 
the  preparation  and  drafting  of  legislative  bills. 

•Secretary  appointed  at  $3,000  per  year;  appropriation  for  the 
biennium.  1913-15.  $25,000. 

•Notice  municipal  information  clause  in  sec.  3;  organization  of 
board,  sec.  1 ;  and  qualifications  of  director,  sec.  2. 


Appendix  351 

The  bureau  is  authorized  to  collect  material  on  municipal  laws 
and  administration  and  furnish  to  the  officials  of  any  municipality 
upon  request,  any  data  and  to  loan  any  material  which  may  be 
available.  The  bureau  may  co-operate  with  any  state  educational 
institution  in  any  manner  approved  by  the  Board. 

The  bureau  may  make  digests  of  laws,  reports  and  other  material 
relating  to  legislation  and  administration  and  with  the  approval 
of  the  bureau  this  same  shall  be  published  by  the  commissioners  of 
the  public  printing,  binding  and  stationery. 

The  clerk  of  the  bureau  of  public  printing,  binding  and  stationery 
shall  cause  to  be  delivered  to  the  bureau  three  copies  of  each  report, 
pamphlet,  compilation  of  laws  or  other  document  published  at  state 
expense. 

All  legislative  papers,  records,  petitions,  charts  of  House  and 
Senate  seats  and  other  documents  shall  be  turned  over  to  the  bureau 
and  shall  when  no  longer  in  current  use  be  turned  over  to  the  state 
library  for  preservation. 

Sec.  4.  Suitable  office  rooms  shall  be  provided  by  the  super- 
intendent of  public  buildings  and  grounds  for  the  use  of  the  bureau 
in  close  proximity  to  the  state  library.  The  bureau  shall  co-operate 
with  the  state  library  in  any  manner  which  will  promote  the  efficiency 
of  the  library  and  the  bureau.  The  files,  indexes,  material  and 
equipment  of  the  legislative  reference  department  shall  be  transferred 
to  the  bureau. 

Sec.  5.  There  is  hereby  appropriated  out  of  the  state  treasury 
from  funds  not  otherwise  appropriated  the  sum  of  $13,500  to  pay 
the  salaries  and  traveling  expenses  of  the  director  and  assistants 
and  for  the  office  and  other  expenses,  incidentals  and  cost  of  publica- 
tions and  other  supplies.  The  money  appropriated  to  the  legis- 
lative reference  department  of  the  state  library  for  the  year  ending 
September  30,  1913,  is  reappropriated  to  the  bureau  of  legislative 
and  administrative  information.  The  sum  of  $2,500  additional 
is  hereby  appropriated  to  the  bureau  to  be  available  April  1,  1913. 
The  sums  appropriated  to  the  legislative  reference  department  of  the 
state  library  for  the  years  ending  September  30,  1914  and  September 
30,  1915  are  hereby  reappropriated  to  the  bureau  of  legislative  and 
administrative  information  in  lieu  of  a  like  amount  of  the  appro- 
priation provided  for  in  this  act. 

Sec.  6.     [Repeal  clause.] 

Sec.  7.     This  act  shall  take  effect  April  1,  1913. 

MICHIGAN.' 
(Public  Acts,  1907,  No.  306,  pp.  405-406.) 
An    Act    to   provide  for  a    legislative  reference  and   information 
department  in  connection  with  the  State  library,  to  make  an  appro- 
priation therefor,  and  to  provide  a  tax  to  meet  the  same. 

'  Notice  in  sec.  3  power  to  investigate  effect  of  new  legislation 
elsewhere  and  in  sec.  4   power  to  receive  all  legislative  papers,  etc. 


352  Appendix 

The  people  of  the  Stale  of  Michigan  enact: 

Sec.  1.  There  is  hereby  created  and  shall  be  hereafter  maintained 
in  connection  with  the  State  library,  a  department  to  be  known  as 
the  legislative  reference  and  information  department  for  the 
UM"  and  information  especially  of  members  of  the  senate  and  house 
of  representatives,  the  several  State  departments,  and  such  other 
persons  as  may  desire  to  consult  the  same.  It  shall  be  located  in 
the  State  capitol  as  conveniently  as  possible  for  members  of  the 
senate  and  house  of  representatives. 

Sec.  2.  The  State  librarian,  within  ten  days  after  this  act  shall 
take  effect,  shall  appoint  an  assistant,  who  shall  be  a  person  trained 
in  political  economy  and  otherwise  fitted  to  perform  the  duties  of  this 
office  as  herein  defined,  who  shall  have  charge  of  said  department 
under  the  supervision  of  the  State  librarian  and  perform  the  duties 
hereinafter  prescribed.  He  shall  receive  an  annual  salar>'  of  fifteen 
hundred  dollars,*  payable  in  the  same  manner  as  the  salaries  of  other 
assistants  in  the  State  library-.  The  State  librarian  shall  also  appoint 
some  suitable  person,  trained  in  political  economy  and  of  known 
capability  in  indexing  and  cataloguing,  as  clerk,  who  shall  receive 
an  annual  salary  of  ten  hundred  dollars,  payable  in  the  same  manner 
as  the  salaries  of  other  assistants  in  the  State  libran*-  are  paid. 

Sec.  3.  The  said  assistant  shall,  as  soon  as  possible,  make  avail- 
able for  ready  reference  and  use,  suitable  indexes  to  all  such  informa- 
tion as  is  contained  in  the  various  public  documents  of  this  State 
and  other  States,  including  senate  and  house  documents  and  legis- 
lative journals,  and  shall  keep  a  complete  file  of  all  bills  printed 
by  order  of  either  house  of  the  legislature.  He  shall  procure  and 
compile  in  suitable  and  convenient  form,  for  ready  reference  and 
access,  information  as  to  proposed  and  pending  legislation  in  other 
States,  and  shall  also  investigate  the  operation  and  effect  of  new 
legislation  in  other  States  and  countries  to  the  end  that  either  house 
of  the  legislature  or  any  committee  or  member  thereof  or  any  citizen 
of  the  State  may  have  the  fullest  information  thereon.  He  shall 
also  give  such  advice  and  assistance  to  the  member  [members]  of  the 
legislature  as  they  may  require  in  the  preparation  of  bills  and  resolu- 
tions, and  shall  draft  bills  upon  such  subjects  as  they  may  desire. 

Sec.  4.  At  the  close  of  each  session  of  the  legislature  the  secretary 
of  the  senate  and  the  clerk  of  the  house  shall,  at  his  request,  deliver 
to  the  said  assistant,  to  be  appropriately  filed  and  preserved,  such 
copies  of  bills  and  joint  resolutions  which  shall  not  have  been  passed 
and  are  still  remaining  in  their  hands,  also  all  important  petitions 
and  memorials  and  other  legislative  documents. 

Sec.  Ft.  The  board  of  State  auditors  shall  furnish,  on  the  requisi- 
tion of  the  State  librarian,  all  such  cases  as  are  necessary  for  the 
cataloguing,  indexing,  and  filing  of  the  materials  and  information 
collected  by  said  department,  and  all  other  supplies  of  said  depart- 
ment shall  be  drawn  by  the  State  librarian  in  the  manner  providecl, 

'Salary  made  $1,800  in  1913. 


Appendix  353 

by  law.  Such  printing  and  binding  as  may  be  necessary  for  said 
department  shall  be  done  as  part  of  the  printing  and  binding  for  the 
State. 

Sec.  6.  The  auditor  general  shall  add  to  and  incorporate  into 
the  State  tax  the  sum  of  two  thousand  five  hundred  dollars  annually, 
and  such  amount  is  hereby  appropriated  from  the  general  funds  of 
the  State,  which  said  sum  shall  be  included  in  the  State  taxes, 
apportioned  by  the  auditor  general  on  all  taxable  property  of  the 
State,  to  be  levied,  assessed,  and  collected,  as  other  State  taxes,  and 
when  so  assessed  and  collected,  to  be  paid  into  the  general  fund  to 
reimburse  said  fund  for  the  appropriation  made  by  this  act. 

This  act  is  ordered  to  take  immediate  effect. 

Approved,  June  28,  1907. 

NEBRASKA.' 

(Nebraska  Session  Law,   1911.) 
An  Act  establishing  the  Nebraska  Legislative  Reference  Bureau, 

prescribing  its  duties,  providing  for  its  government,  and  declaring 

an  emergency. 

Be  it  Enacted  .  .  . 

Sec.  1.  (Legislative  Reference  Bureau.)  There  is  hereby  estab- 
lished the  Nebraska  Legislative  Reference  Bureau  for  the  use  and 
information  of  members  of  the  state  legislature,  the  executive  depart- 
ments and  such  other  citizens  of  the  state  as  may  desire  to  consult 
the  same. 

Sec.  2.  (Same — duties.)  Said  bureau  shall  gather,  arrange, 
catalogue,  compile,  edit,  index  and  publish  information  upon  subjects 
of  legislation  and  administration.  It  shall  maintain  a  compact 
library  of  books,  pamphlets,  maps,  clippings  and  other  material 
useful  for  its  purposes  and  shall  avail  itself  of  the  facilities  of  other 
libraries  under  the  rules  and  regulations  of  such  libraries  in  answering 
requests  for  information.  It  shall  prepare  check-lists  and  catalogues 
of  Nebraska  legislative  bills  and  public  documents,  together  with 
such  data  upon  the  same  in  other  states  and  countries  as  may  be 
needed,  and  shall  carry  on  research  in  subjects  of  special  public 
interest  and  publish  the  same  in  convenient  form.  It  shall,  when 
requested  by  members  of  the  legislature  or  the  executive  depart- 
ments, promptly  procure  available  information,  not  on  file  in  the 
bureau,  relating  to  pending  legislation  and  investigate  the  manner 
in  which  laws  have  operated  in  other  states  and  countries. 

Sec.  3.  (Same  — ■  Municipal  subjects.)  Said  bureau  shall  also 
maintain  a  special  service  upon  municipal  subjects  for  the  use  of 
city  and  village  officials  and  other  citizens  interested  therein  and 
shall  in  every  way  promote  the  diffusion  of  accurate  and  reliable 
information  upon  questions  connected  with  the  development  of 
civic  life  in  Nebraska. 

*  Notice  municipal  relations,  sec.  3,  and  university  affiliations, 
sec.  4-5. 


354  Appendix 

Sec.  4.  (Affiliation  with  University.)  Said  bureau  shall  be  affil- 
iated with  the  Department  of  Political  Science  and  Sociology  and 
with  the  College  of  Law  of  the  University  of  Nebraska  and  shall  be 
under  the  rules  and  regulations  of  the  Board  of  Regents  of  the  State 
University.  It  shall  give  such  instruction  and  furnish  such  facilities 
for  the  training  of  students  in  legislative  reference  work  and  in  the 
knowledge  of  Nebraska  institutions  as  may  be  arranged  for  with  the 
heads  of  said  Department  and  College  and  maj'  with  the  consent 
of  the  Board  of  Regents  use  the  students  in  these  courses  as  assistants 
during  the  sessions  of  the  legislature. 

Sec.  5.  (Director,  assistants,  appointment.)  The  Board  of 
Regents  of  the  State  University  shall  appoint  a  director  of  said 
reference  bureau  who  shall  be  a  person  of  special  training  and  ex- 
perience in  such  work.  The  director  shall  have  general  direction 
and  management  of  the  bureau  under  the  Board  of  Regents  and 
shall  make  a  report  of  the  work  of  the  bureau  to  said  Board  on  or 
before  November  1st  of  each  year,  which  report  shall  be  printed  and 
a  copy  therof  sent  to  each  member  of  the  legislature.  The  Board 
of  Regents  may  appoint  an  assistant  director  and  librarian-stenog- 
rapher and  such  other  temporary  assistants  as  may  be  authorized 
by  the  legislative  appropriation. 

Sec.  6.  (Same  —  duties.)  The  director  and  his  assistants  shall 
neither  oppose  not  urge  legislation,  but  may,  upon  request,  aid  and 
assist  the  members  of  the  legislature  and  the  executive  departments 
as  to  bills,  resolutions  and  measures,  drafting  the  same  into  proper 
form,  and  furnishing  to  them  the  fullest  information  upon  all  matters 
in  the  scope  of  the  bureau.  No  employee  of  the  bureau  shall  reveal 
to  any  person  outside  thereof  the  contents  or  nature  of  any  matter 
not  yet  published,  except  with  the  consent  of  the  person  bringing 
such  matter  before  the  bureau. 

Sec.  7.  (Offices.)  During  the  sessions  of  the  legislature  and  for 
at  least  one  month  preceding  and  one  month  following  said  sessions, 
the  Board  of  Public  Lands  and  Buildings  shall  assign  to  the  bureau 
rooms  suitable  for  its  work  and  convenient  for  the  use  of  members 
of  the  legislature.  When  the  legislature  is  not  in  session,  the  Board 
of  Regents  shall  if  practicable  assign  to  the  bureau  rooms  convenient 
for  its  work  and  for  making  its  material  available  to  the  public. 

Sec.  8.  (Emergency.)  Whereas,  an  emergency  exists,  this  act 
shall  be  in  force  from  and  after  its  passage  and  approval  according 
to  law. 

Approved  April  7,  IQIL'" 

The  Nebraska  Appropriation  bill  of  1913  contained  the  following 
new  and  interesting  provision  {Session  Laws,  1913,  p.  733). 

"Neither  the  director  nor  the  assistant  director,  nor  any  employe 
of  the  legislative  reference  bureau  shall  draft  or  prepare  any  bill  for 
introduction  into  the  legislature  for  any  member  of  the  legislature 
or  for  any  other  person,  except  on  the  payment  of  five  dollars  (S5.00) 

"  Biennial  appropriation.     1913-15,  $16,400. 


Appendix  355 

for  each  and  every  bill  that  may  be  so  prepared  by  any  employe 
of  said  bureau,  which  sum  shall  be  paid  unto  the  State  Treasury  for 
the  benefit  of  the  general  fund." 

NEW  HAMPSHIRE." 

(1913— Chapter  206.) 

An  Act  to  provide  for  a  Legislative  Reference  Bureau  in  the  New 
Hampshire  State  Library. 

Be  it  enacted  by  the  Senate  and  House  of  Representatives  in 
(jreneral  Court  convened: 

Sec.  1.  There  is  hereby  established  in  the  state  library  under 
the  direction  of  the  state  librarian  a  legislative  reference  bureau 
whose  duties  shall  be,  to  collect,  arrange,  index  and  classify  books 
pamphlets  and  other  material  relating  to  legislation;  to  prepare 
abstracts  of  laws  in  other  states  and  countries;  to  supply  such  other 
information  as  may  be  of  service  to  the  members  of  the  Legislature 
or  the  executive  departments  in  the  performance  of  their  duties- 
to  furnish  to  members  of  the  legislature  such  assistance  as  may 
be  demanded  in  the  preparation  and  formulation  of  legislative  bills 

Sec.  2.  The  state  librarian,  with  the  approval  of  the  trustees  of 
the  state  library-,  shall  be  empowered  to  incur  such  expense  as  may 
be  necessary  in  the  proper  administration  of  the  bureau,  not  exceed- 
ing five  hundred  dollars  annually,  said  sum  to  be  expended  from  the 
appropriation  in  favor  of  said  state  library,  and  the  work  made 
necessary  by  the  installation  of  this  bureau  shall  be  performed  by 
the  regular  force  employed  in  said  state  library. 

Approved  May  21,  1913. 

NORTH    DAKOTA. 

(Laws  1907,  ch,  243,  p.  382.) 

State  library  commission  created. 

An  Act  creating  a  State  library  commission,  defining  its  duties,  and 

providing  an  appropriation  for  its  maintenance. 

^9-  ^-  *  *  *  The  State  library'  commission  shall  have  power 
and  It  shall  be  its  duty  to  establish  a  legislative  reference  bureau  for 
the  intormation  and  assistance  of  the  members  of  the  legislative 
assembly  in  the  work  of  legislation.  The  legislation  of  other  States 
and  intormation  upon  legal  and  economic  questions  shall  be  classified 
and  catalogued  in  such  a  way  as  to  render  the  same  easy  of  access  to 
members,  thereby  enabling  them  better  to  prepare  for  their  work. 
It  shall  be  the  duty  of  the  librarian  of  the  State  library'  commission 
to  assist  in  every  way  possible  the  members  of  the  legislative  assembly 
m  obtaining  information  and  the  preparation  of  bills 

*******♦♦ 

Approved,  March  2,  1907. 

"  No  additional  help  nor  additional  funds  provided. 


350  Appendix 

OHIO.»'- 
AN  Act  to  create  legislative  reference  department,  to  provide  for 

the  maintenance  and  administration  of  the  said  department,  for 

the  apfKjintment  of  a  chief  thereof,  and  to  repeal  sections  798-1 

to  79S-5  of  the  General  Code  of  Ohio. 

Be  it  macted  by  the  General  A  ssembly  of  the  State  of  Ohio. 

Sec.  1.  There  is  hereby  created  and  shall  hereafter  be  maintained 
a  department  to  be  known  as  the  "Legislative  Reference  Depart- 
ment," for  the  use  and  information  especially  of  the  members  of  the 
general  assembly,  the  ofificers  of  the  several  state  departments  and 
the  public.  The  department  shall  be  under  the  direction  and  super- 
vision of  the  state  board  of  librar>-  commissioners  who  shall  provide 
suitable  quarters  in  the  state  capitol  for  said  department. 

Sec.  2.  The  state  board  of  library  commissioners  shall  employ 
a  director  and  fix  his  compensation.  He  shall  have  charge  of  such 
department  and  shall  be  an  expert  in  political  science,  economics 
and  public  law.  The  salary-  and  appointment  of  the  director  shall 
be  approved  by  the  governor  and  the  director  shall  be  removed  by 
the  board  only  for  misconduct,  incompetency  or  disability.  Upon 
the  recommendation  of  the  director  such  board  shall  make  rules  for 
the  direction  of  the  department  and  its  service  as  it  deems  necessary. 

Sec.  3.  It  shall  be  the  duty  of  the  director  to  collect  and  compare 
the  laws  of  this  and  other  states  pertaining  to  any  subject  upon  which 
he  may  be  requested  to  report  by  the  go\'ernor  or  any  committee  or 
member  of  the  general  assembly;  to  collect  all  available  information 
relating  to  any  matter  which  shall  be  the  subject  of  proposed  legis- 
lation by  the  general  assembly;  to  prepare  or  advise  in  the  prepara- 
tion of  any  bill  or  resolution  when  requested  to  do  so  by  the  governor 
or  by  any  member  of  the  general  assembly;  to  preserve  and  collate 
all  information  obtained  and  carefully  index  and  arrange  the  same 
so  that  it  may  be  at  all  times  easily  accessible  to  the  members  of  the 
general  assembly,  other  state  officials  and  to  the  general  public  for 
reference  purposes;  to  collect  such  books,  pamphlets,  periodicals, 
documents  and  other  literature  as  may  be  of  use  to  the  general 
assembly  or  other  state  officials,  and  to  keep  the  same  on  file  in  the 
quarters  of  the  department,  temporarily  or  permanently,  according 
to  the  time  for  which  such  literature  may  be  needed.  It  shall  further 
be  the  duty  of  the  director  to  collect,  compile,  classify  and  index  the 
documents  of  the  state,  including  senate  and  house  journals,  execu- 
tive and  legislative  documents  and  departmental  reports  of  this  and 
other  states;  to  keep  on  file  all  bills  and  resolutions  printed  by  order 
of  either  house  of  the  general  assembly;  to  accumulate  data  and 
statistics  regarding  the  practical  operation  and  effect  of  statutes  of 
this  and  other  states. 

Sec.  4.  Subject  to  the  approval  of  the  board,  the  director  may 
employ  and  fix  the  compensation  of  such  assistants,  draftsmen  and 
clerical  help  as  may  be  necessary  to  effect  the  purf>ose  of  this  act 

"  Notice  permanent  tenure  of  director,  sec.  2. 


Appendix  357 

and  to  incur  necessary  and  incidental  expenses  in  the  conduct  of 
the  department,  which  expense  may  include  costs  of  traveHng  of 
the  director  or  assistants.  The  compensation  of  the  director  and 
employes  and  such  expense  shall  be  paid  out  of  the  state  treasury 
upon  the  warrant  of  the  auditor  of  state  upon  vouchers  approved 
by  the  director  of  the  department  and  paid  out  of  the  appropriations 
made.  All  vouchers  for  expenses  shall  be  itemized  and  sworn  to 
by  the  director. 

Sec.  5.  The  director  of  the  legislative  reference  department 
shall  arrange  with  the  proper  officials  of  the  Ohio  State  University, 
the  Ohio  State  Archaeological  and  Historical  Society,  the  Supreme 
Court  Law  Library,  and  the  Ohio  State  Library  for  the  use  of  general 
books  and  references  in  their  custody,  and  the  proper  officials  of  the 
Ohio  State  University,  the  Ohio  State  Archaeological  and  Historical 
Society  and  the  Ohio  State  Library  are  hereby  directed  to  lend  to 
the  Legislative  Reference  Department  for  the  use  of  said  department 
such  books  and  documents  as  he  may  require.  The  director  is  also 
authorized  to  give  or  lend  to  the  proper  officials  of  the  Ohio  State 
University,  the  Ohio  State  Archaeological  and  Historical  Society 
and  the  Ohio  State  Library  any  books  and  documents,  as  may  not  be 
required  by  him. 

Sec.  6.  At  the  close  of  each  session  of  the  general  assembly  the 
clerk  of  the  senate  and  the  clerk  of  the  house  shall  deliver  to  the  direc- 
tor copies  of  all  bills,  joint  resolutions,  important  petitions,  memorials 
and  other  legislative  documents  passed  or  presented  during  such 
session  of  the  legislature. 

Sec.  7.  The  state  board  of  library  commissioners  is  authorized 
to  make  necessary  expenditures  out  of  the  appropriations  made, 
to  obtain  the  books  and  documents  necessary  to  establish  an  effective 
Legislative  Reference  Department,  including  statistics  and  other 
information,  upon  the  recommendation  of  the  director. 

Sec.  8.  There  is  hereby  appropriated  out  of  any  money  in  the 
state  treasury  to  the  credit  of  the  general  revenue  fund,  not  other- 
wise appropriated,  for  the  purpose  of  establishing  and  maintaining 
said  Legislative  Reference  Department,  the  payment  of  all  expenses 
therein  incurred,  including  the  salaries  of  the  chief  of  the  said  depart- 
ment and  all  assistants  and  employees  therein,  the  sum  of  ten 
thousand  dollars  ($10,000),^'  and  such  further  sums  as  the  general 
assembly  shall  from  time  to  time  determine. 

Sec.  9.     [Repeal  clause.] 

Sec.  10.     [Emergency  clause.] 

Approved  January  31,  1913. 

OREGON. 

(By  the  laws  of  1913,  Chapter  149,  the  former  State  Library  became 
the  Supreme  Court  Library  and  the  Library  of  the  Library'  Commis- 
sion became  the  State  Library;    the  Commissioners  were  made  the 

"  Increased  to  $15,650  for  1913. 


358  Appendix 

Trustees  of  the  State  Library  and  the  Secretary  of  the  Commission 
beiame  State  Librarian.  A  proper  distribution  of  books  and  docu- 
ments was  ordered  so  that  only  legal  material  would  belong  to  the 
Supreme  Court  Library. 

Sec.  6  of  this  law  illustrates  a  provision  in  a  general  state  library 
law  under  which  it  is  assumed  that  the  state  library  will  undertake 
legislative  reference  work.) 

•  **•♦*• 

Sec.  6.  The  State  Librarian,  upon  the  taking  eflfect  of  this  act, 
shall  also  collect  and  index  those  public  documents  which  shall  be 
of  service  to  State  boards,  officials  and  commissioners,  and  for 
reference  work  for  the  members  of  the  legislature  for  investigation 
of  public  questions.  These  services  shall  be  rendered  in  accordance 
with  rules  and  regulations  to  be  fixed  by  the  trustees  of  the  State 
Library  who  shall  designate  those  books  which  are  to  be  used  for 
circulating  and  those  which  are  to  be  kept  as  a  reference  collection. 

PENNSYLVANIA.'* 
(Laws  1909.     p.  208  as  amended  by  1911  p.  76.) 

Sec.  1.  Be  it  enacted,  etc..  That  from  and  after  the  first  day  of 
June,  Anno  Domini  one  thousand  nine  hundred  and  nine,  the  trustees 
of  the  Pennsylvania  State  Library  be  and  they  are  hereby  authorized 
and  directed  to  maintain  a  Legislative  Reference  Bureau  in  the  State 
Library-,  for  the  use  and  information  of  the  members  of  the  General 
Assembly,  the  heads  of  the  several  departments  of  the  State  govern- 
ment, and  such  other  citizens  of  the  Commonwealth  as  may  desire 
to  consult  the  same. 

Sec.  2.  The  director  of  the  said  Legislative  Reference  Bureau 
of  the  Pennsyhania  State  Library  shall  be  appointed  by  the  Gover- 
nor, by  and  with  the  advice  and  consent  of  the  Senate,  to  hold  office 
for  four  years  from  the  date  of  his  appointment,  and  he  shall  be  well 
qualified  by  experience,  knowledge,  and  ability  to  conduct  the  work 
of  the  Bureau;  he  shall  be  well  versed  in  legislative  procedure  and 
parliamentary'  practice,  and  shall  in  such  matters,  when  called  upon, 
be  ex-officio  adviser  to  the  General  Assembly;  and  shall  receive  a 
salary  of  five  thousand  dollars  per  annum,  and  his  traveling  expenses, 
actually  and  necessarily  incurred  in  the  performance  of  his  official 
duties.  He  shall  give  bond  in  the  sum  of  ten  thousand  dollars,  to 
Ix"  approved  by  the  Governor,  for  the  faithful  performance  of  his 
duties,  and  he  shall  devote  his  whole  time  and  attention  to  the  duties 
of  his  office.  He  shall  have  custody  of  the  law  library,  and  the  pub- 
lications therein  of  the  various  State  governments  and  the  LInited 
States  Government,  which  may  be  generally  classed  as  legislative 
documents. 

Sec.  3.  The  director,  by  and  with  the  approval  of  the  Governor, 
shall  appoint  one  assistant  director,  learned  in  the  law,  who  shall 

'*  Notice  particularly  sees.  2  and  6. 


Appendix  359 

receive  a  salary  of  four  thousand  dollars  per  annum;  a  search  clerk 
who  shall  receive  a  salary  of  two  thousand  dollars  per  annum;  a 
reference  division  stenographer,  who  shall  receive  a  salary  of  twelve 
hundred  dollars  per  annum;  an  assistant  stenographer,  who  shall 
receive  a  salary  of  one  thousand  dollars  per  annum;  a  cataloguer, 
who  shall  receive  a  salary  of  one  thousand  dollars  per  annum,  and 
a  messenger,  who  shall  receive  a  salary  of  nine  hundred  dollars  per 
annum.  The  State  Librarian  shall  also,  at  the  request  of  the  director, 
assign  any  employes  of  the  library  for  work  in  the  Legislative  Refer- 
ence Bureau  during  the  session  of  the  General  Assembly.  The 
director  may,  for  a  period  commencing  one  month  prior  to  and 
ending  one  month  after  each  future  session  of  the  General  Assembly, 
appoint  not  more  than  three  search  clerks,  learned  in  the  law,  at  a 
salary  not  to  exceed  five  dollars  per  day  each;  two  stenographers, 
at  a  salary  not  to  exceed  five  dollars  per  day  each;  and  three  stenog- 
raphers, at  a  salary  not  to  exceed  two  dollars  per  day  each,  and  a 
record  clerk,  at  a  salary  not  to  exceed  four  dollars  per  day:  such 
employes,  when  appointed,  shall  be  certified  to  the  Auditor  General 
by  the  director  and  shall  receive  the  amount  due  them  at  the  end 
of  each  month,  upon  warrant  of  the  Auditor  General. 

Sec.  4.  The  trustees  of  the  State  Library  shall  provide  the  bureau 
with  suitable  rooms  in  the  State  Library  building,  situated  so  as  to 
give  the  bureau  ready  access  to  the  volumes,  catalogues,  documents, 
and  other  papers  in  the  State  Library,  and  in  a  place  where  the 
bureau  will  be  convenient  to  the  members  of  the  General  Assembly 
and  others  having  official  business  with  the  said  bureau.  The  refer- 
ence bureau  shall  be  kept  open  from  nine  ante  meridian,  to  four 
post  meridian,  during  the  entire  year ;  and  when  the  General  Assembly 
is  in  session,' at  such  hours,  day  and  night,  as  are  most  convenient 
to  its  members. 

Sec.  5.  The  director  shall  prepare  and  have  available  for  use 
check-lists  and  catalogues  of  all  Pennsylvania  laws,  and  all  the  cur- 
rent legislation  of  Pennsylvania  and  other  States;  lists  of  bills  and 
resolutions  presented  in  either  branch  of  the  General  Assembly; 
check-lists  of  the  public  docum.ents  of  the  State,  including  all  reports 
issued  by  the  said  departments,  boards,  and  commissions;  digests 
of  such  public  laws  of  this  and  other  States  as  may  be  thus  best  made 
available  for  legislative  use;  catalogued  files  of  newspaper  clippings, 
and  of  such  other  printed  matter  as  may  be  proper  for  the  purposes 
of  the  bureau.  The  director  shall  also,  when  requested  by  the 
Governor,  heads  of  departments,  or  members  of  the  General  Assembly 
promptly  procure  available  information,  not  on  file  in  the  bureau, 
relating  to  pending  legislation,  and  investigate  the  manner  in  which 
laws  have  operated  in  other  States.  He  shall  also,  if  possible, 
establish  card  catalogue  exchanges  with  other  States  where  laws 
similar  to  this  are  now  in  force  or  hereafter  may  be  passed.  He 
shall,  from  time  to  time,  prepare  and  publish  such  bulletins,  pamph- 
lets, and  circulars,  containing  information  collected  by  the  bureau, 
and  such  compilation  of  the  laws  of  this  or  of  other  States,  as  he  shall 


360  Appendix 

deem  to  be  of  service  to  the  several  departments  of  the  State  govern- 
ment, the  members  of  the  General  Assembly,  and  the  citizens  of  this 
Commonwealth. 

Sec.  6.  The  director  and  his  assistants  shall  neither  oppose 
nor  urge  legislation;  but  shall,  upon  request,  aid  and  assist  the  mem- 
bers of  the  Cieneral  Assembl>',  the  Governor,  and  the  heads  of 
departments  by  advising  as  to  bills  and  resolutions,  and  drafting 
the  same  into  proper  form,  and  by  furnishing  to  them  the  fullest 
information  upt^n  ail  matters  in  the  scope  of  the  bureau  relating  to 
their  public  duties.  No  employes  of  the  bureau  shall  reveal  to 
any  person  outride  of  the  bureau  the  contents  or  nature  of  any 
matter  not  yet  published,  except  with  the  consent  of  the  person 
bringing  such  matters  before  the  bureau. 

Sec.  7.  The  printing  and  binding  necessary  for  the  proper  per- 
formance of  the  duties  of  said  division,  or  the  proper  preser\'ation 
of  material  collected  under  the  same,  shall  be  done  by  the  State 
Printer,  upon  the  order  of  the  Superintendent  of  Public  Printing 
and  Binding,  upon  requisition  of  the  Legislative  Director;  and 
the  Board  of  Public  Grounds  and  Buildings  shall,  upon  the  requisition 
of  the  said  director,  furnish  the  bureau  with  such  books,  stationery, 
supplies,  furniture,  et  cetera,  as  may  be  needed  to  properly  conduct 
the  affairs  of  the  bureau. 


PENNSYLVANIA. 
(Laws,  Session  1913,  no.  175,  p.  250-51.) 
As  Act  Directing  the  Legislative  Reference  Bureau  to  prepare 
compilations  or  codes,  by  topics  of  the  existing  general  laws  of 
this  commonwealth,  for  adoption  or  rejection  by  the  General  As- 
sembly; fixing  the  powers  and  duties  of  the  bureau  therein;  fix- 
ing the  compensation  of  the  assistant  director;  and  making  an 
appropriation  therefor. 

Sec.  1.  Be  it  enacted,  etc.,  That  the  Legislative  Reference 
Bureau  is  hereby  directed  to  examine  the  entire  general  statute  law 
of  this  Commonwealth;  and  to  ascertain  as  nearly  as  may  be,  what 
laws  and  parts  of  laws  have  been  repealed,  or  which  have  become 
obsolete,  and  to  prepare  lists  of  the  same.  It  shall  be  the  further 
duty  of  the  bureau  to  cause  to  be  prepared,  for  adoption  or  rejection 
by  the  General  Assembly,  compilations,  by  topics  of  the  existing 
general  statutes,  arranged  by  chapters  and  sections,  under  suitable 
headings,  with  accompanying  lists  of  statutes  to  be  repealed.  It 
shall  be  the  further  duty  of  the  bureau  to  cause  to  be  prepared  codes 
of  the  existing  laws  on  each  of  such  topics,  together  with  lists  of 
statutes  to  be  repealed,  in  the  event  of  the  adoption  by  the  General 
Assembly  of  any  such  codes. 

Sec.  2.  The  l)ureau  is  authorized  to  employ  such  experts,  learned 
in  the  law,  or  otherwise,  such  clerical  and  stenographical  and  other 
help,  as  the  bureau  shall  deem  necessary  in  carrying  out  the  provi- 
sions of  this  act.     The  bureau  shall  report  to  the  next  General 


Appendix  361 

Assembly  for  adoption  or  rejection,  such  topics  as  have  been  com- 
pleted. 

Sec.  3.  The  printing  and  binding  deemed  necessary  by  the 
director,  in  the  proper  performance  of  the  duties  herein  imposed, 
shall  be  done  by  the  State  Printer,  upon  order  of  the  Superintendent 
of  Public  Printing  and  Binding,  upon  a  requisition  of  the  Director 
of  the  Bureau. 

Sec.  4.  The  compilations  provided  for  in  this  act  shall  be  under 
the  special  direction  of  the  Assistant  Director  of  the  Legislative 
Reference  Bureau,  learned  in  the  law,  who  shall  receive  in  addition 
to  his  regular  salary,  the  sum  of  one  thousand  dollars  ($1,000)  a 
year  for  the  two  years  of  1913,  and  1914. 

Sec.  5.  To  carry  out  the  purposes  of  this  act  the  sum  of  thirty 
thousand  dollars  ($30,000),  or  so  much  thereof  as  may  be  necessary, 
is  hereby  specifically  appropriated  to  the  Director  of  the  Legislative 
Reference  Bureau. 

Approved  the  20th  day  of  May,  A.D.  1913. 

RHODE   ISLAND. 

(General  Laws,  revision  of  1909,  ch.  38.  Public  Laws  1471,  Apr. 
23,  1907.  Public  Laws  1554,  Apr.  30,  1908,  p.  193-94; 
chap.  935.     Acts  and  Resolves,  1913.     p.  51-52.) 

*  *  *  *  **  =K 

Sec.  17.  There  shall  be  in  the  State  library,  under  the  direction 
of  the  State  librarian,  a  legislative  reference  bureau,  which  shall 
collect,  arrange,  and  place  on  file  books,  pamphlets,  and  other 
material  relating  to  legislation,  which  shall  prepare  abstracts  of  laws 
in  other  States,  and  which  shall  present  such  other  information  as 
may  be  useful  and  necessary  to  the  general  assembly  in  the  perform- 
ance of  its  legislative  duties. 

Sec.  18.  {Acts  and  Resolves,  1913,  p.  51-52)  [Authorizes  State 
Librarian  with  approval  of  Secretary  of  State  to  employ  assistance 
and  incur  expenses  to  the  extent  of  $3,250  annually,  and  of  $250 
additional.] 


SOUTH    DAKOTA. 
(Session  Laws  1907,  ch.  185,  p.  395-96.) 
An  Act  Entitled  an  act  establishing  a  division  of  legislative  reference 
in  the  State  library. 

Be  it  enacted  by  the  Legislature  of  the  State  of  South  Dakota : 

Sec.  1.  Duty  of  Librarian:  The  State  librarian  is  hereby 
directed  to  establish  in  the  State  library  a  division  of  legislative 
reference,  in  which  he  shall  provide  the  reports  of  the  various  officers 
and  boards  of  this  State,  and  as  far  as  may  be  of  other  States,  and 
such  other  material  upon  economic  and  sociological  subjects  as  he 
may  be  able  to  provide,  and  shall  index  and  classify  the  same  and 
make  the  information  therein  available  for  the  use  of  the  State 


362  Appendix 

legislature,  and  shall,  as  required,  provide  for  the  use  of  members 
of  the  legislature  such  information  and  assist  in  drafting  bills,  and 
in  every  reasonable  way  make  the  division  useful  in  the  preparation 
of  legislation.  ,  .         .      .    n 

Sec.  2.  The  various  departments,  olticers,  and  boards  shall  pro- 
vide copies  of  their  reports  and  publications  for  the  legislative 
division  of  the  State  library,  and  the  secretary  of  state  is  directed 
to  supply  to  the  same  a  complete  set  of  the  statutes  and  session  laws 
of  the  State  and  of  the  reports  of  the  supreme  court. 

Sec.  H.  Rei)eal:  All  acts  or  parts  of  acts  in  conflict  with  this  act 
are  hereby  repealed. 

Approved,  February  18,  1907. 

TEXAS. 

(C.eneral  Laws  1909,  ch.  70,  p.  126.) 

An  Act  to  create  the  Texas  Library  and   Historical  Commission. 

settting   forth   the  purposes  of  the  said    Library  and   Historical 

Commission,  defining  its  powers  and  duties,  etc. 

*  *  *  *  .      *  ♦ 

Sec.  11.  That  the  said  Library  and  Historical  Commission  is 
hereby  authorized  and  directed  to  maintain  for  the  use  and  informa- 
tion of  the  members  of  the  legislature,  the  heads  of  the  several  State 
departments,  and  such  other  citizens  as  may  desire  to  consult  the 
same,  a  section  of  the  State  library  for  legislative  reference  and  in- 
formation. The  Library  and  Historical  Commission  shall  appoint 
an  assistant  librarian  competent  to  conduct  the  work  of  said  legis- 
lative reference  section.  Said  assistant  librarian  shall  have  available 
for  use  explanatory  check  lists  and  catalogues  of  the  current  legis- 
lation of  this  and  other  States,  catalogues  of  the  bills  and  resolutions 
presented  in  either  branch  of  the  legislature,  check  lists  of  the 
public  documents  of  the  several  States,  including  all  reports  issued 
by  the  various  departments,  boards,  and  commissions  of  this  State, 
digests  of  such  public  laws  of  this  and  other  States  as  may  best  be 
made  available  for  legislative  use.  Said  assistant  librarian  shall 
give  the  members  of  the  legislature  such  aid  and  assistance  in  the 
drafting  of  bills  and  resolutions  as  may  be  asked." 

VERMONT." 

No.  14.  —  An  Act  to  amend  No.  9  of  the   Acts  of    1910,  relating 

to  a  Legislative  Reference  Bureau. 

It  is  hereby  enacted  .   .  . 

Sec.  1.  No  9  of  the  acts  of  1910  is  hereby  amended  so  as  to  read 
as  follows: 

"  An  appropriation  of  $.5,000  per  year  for  1913-15  for  maintenance 
of  the  legislative  reference  department  allowed  by  the  legislature 
was  vetoed  by  the  Governor. 

'•  Notice  sees.  3-4  and  the  unusual  powers  granted. 


Appendix  363 

Sec.  1.  There  is  hereby  created  and  shall  be  hereafter  maintained 
in  connection  with  the  state  library  a  legislative  reference  bureau 
which  shall  be  in  charge  of  a  legislative  reference  librarian,  appointed 
by  the  governor,  to  hold  office  until  removal  for  cause,  and  to  per- 
form under  the  supervision  of  the  state  librarian  the  duties  hereinafter 
prescribed. 

Sec.  2.  It  shall  be  the  duty  of  the  legislative  reference  librarian 
to  collect,  arrange,  inrlex  anrl  place  on  file  for  the  use  of  state  officers, 
members  and  committees  of  the  general  assembly,  and  the  public 
such  books,  pamphlets,  clippings,  exchanges,  and  other  material 
relating  to  legislation  as  may  be  possible;  also  to  make  available 
for  ready  reference  such  information  as  is  contained  in  the  public 
documents  of  the  state,  including  senate  and  house  journals,  to 
keep  an  index  of  all  bills  printed  by  order  of  either  house  of  the 
general  assembly;  to  i)repare  abstracts  of  laws  in  other  states  and 
to  furnish  any  data  available  regarding  the  results  of  such  laws  in 
actual  practice,  together  with  references  to  judicial  decisions  and 
interpretations  upon  such  laws.  The  bureau  shall  furnish  such  other 
information  rt-sperting  legislative  matters  as  may  be  useful  and 
necessary  to  the  members  of  the  general  assembly,  anrl  it  shall  make 
available  such  current  information  as  will  make  all  its  data  of  present 
value.  It  shall  be  the  duty  of  the  legislative  reference  librarian  to 
co-operate  with  the  revisers  of  bills,  hereinafter  descril)ed,  and  he 
shall  act  as  a  co-ordinate  member  of  their  board  in  any  exigency 
requiring  a  third  member,  or  in  any  case  where  a  reviser  is  tem- 
porarily unable  to  perform  the  duties  of  his  office. 

Sec.  3.  Two  men  of  legal  training  and  practice,  who  have  had 
legislative  experience,  but  who  shall  not  be  eligible  to  membership 
in  either  branch  of  the  legislature  during  incumbency  in  this  office, 
shall  be  appointed  by  the  governor  and  confirmed  by  the  senate, 
to  be  known  as  the  revisers  of  bills,  and  to  perform  until  removed 
for  cause,  the  duties  hereinafter  prescribed;  and  any  vacancy 
caused  by  the  death,  resignation  or  removal  of  a  reviser  of  bills  shall 
be  filled  by  the  governor.  The  revisers  of  bills  shall  perform  their 
duties  in  the  office  of,  and  in  connection  with,  the  legislative  reference 
bureau  in  the  state  library. 

Sec.  4.  It  shall  Ix-  the  duty  of  the  revisers  of  bills  to  examine, 
previous  to  their  introduction,  all  bills  and  resolutions  presented 
to  either  branch  of  the  legislature,  making  such  corrections  as  may 
be  necessary  in  the  text  and  references  in  clear  and  concise  language 
and  consistency  with  existing  statutes,  and  to  avoid  repetitions  and 
unconstitutional  provisions.  No  bill  or  resolution,  whether  intro- 
duced by  a  member  or  a  committee,  shall  be  acted  upon  by  either 
house  until  corrected  and  indorsed  by  the  revisers  of  bills  who  shall, 
if  the  assembly  be  in  .session,  make  their  corrections  upon  bills  and 
amendments  within  the  time  allowed  by  the  rules  of  the  senate  and 
house  of  representatives.  The  revisers  shall  give  assistance  to  mem- 
bers and  committees  in  the  drafting  of  bills,  resolutions  and  amend- 
ments, if  so  requested.     A  reviser  shall  not  oppose  nor  urge  legisla- 


364  Appendix 

lion;  he  shall  not  materially  alter  the  substance  of  a  bill  or  resolu- 
tion; and  no  one  connected  with  the  office  shall  communicale  the 
substance  of  any  bill  or  resolution  without  permission  of  its  intro- 

Sec.  5.  Whenever  necessary-  m  the  mtervals  between  the  sessions 
of  the  legislature  the  revisers  of  bills  may  meet  for  work  at  the 
capitol,  but  they  shall  be  required  to  be  in  actual  session  in  the  office 
of  the  legislative  reference  librarian  from  a  date  not  less  than  thirty 
days  prior  to  the  opening  of  a  regular  session  of  the  general  assembly 
until  the  final  adjournment  thereof.  Within  three  days  after  the 
general  election  of  a  general  assembly  the  sergeant-at-arms  shall 
forward  immediately  to  all  senators  and  representatives  elect  a 
sufficient  number  of  blanks  for  the  preparation  of  bills,  together 
with  a  notice  in  the  following  form: 

To  the Elect  of  the of . 

■^'ou  are  hereby  notified  that  the  revisers  of  bills  will  be  in  session 

at    the   state    library-   in    Montpelier,    on   and   after and 

you  are  urged  to  prepare  and  forward  to  them  at  once  any  bills 
which  you  desire  to  introduce  for  enactment  by  the  general  assembly. 

Sergeant -at-Arms. 

Provided,  however,  that  nothing  in  this  act  shall  be  construed  as 
placing  any  limit  upon  the  time  allowed  for  the  introduction  of  bills 
by  the  rules  which  either  branch  of  the  legislature  may  adopt. 

Sec.  6.  The  legislative  reference  librarian  shall  have  a  salary 
to  be  fixed  by  the  governor  and,  with  the  advice  and  consent  of  the 
state  librarian,  he  shall  employ  such  assistance  and  incur  such 
expense  as  may  be  necessary  for  the  proper  administration  of  this 
bureau.  Upon  his  requisition,  the  sergeant-at-arms  shall  furnish, 
at  the  expense  of  the  state,  all  such  cabinets  and  supplies  as  may  be 
necessary  for  the  cataloging,  indexing,  and  filing  of  materials  and 
information  collected  by  the  bureau.  The  sum  of  five  thousand 
dollars,  or  such  portion  thereof  as  may  be  necessary,  is  hereby 
annually  appropriated  for  the  purposes  of  this  act. 

Sec.  7.  The  revisers  of  bills  shall  receive  a  salary  of  seven  and 
one  half  dollars  a  day  and  necessary  expenses  for  actual  time  spent 
and  may  employ  at  the  expense  of  the  state  necessary  clerical  and 
stenographic  assistance. 

Approved  February  21,  1913. 

W^ISCONSIN." 
(Session  Laws,  1913  Sec.  373  f.) 
Sec.  373f.     1.     The    said    commission    is    also    authorized    and 
directed  to  maintain  in  the  state  capitol,  for  the  use  and  information 

"  Notice  provisions  authorizing  investigations  (sec.  1)  and  employ- 
ment of  draughtsmen  preceding  each  session  (sec.  2). 


Appendix  365 

of  the  legislature,  the  several  state  departments,  and  such  other 
citizens  as  may  desire  to  consult  the  same,  a  legislative  reference 
room  and  a  small  working  library,  as  complete  as  may  be,  of  the 
several  public  documents  of  this  and  other  states,  and  to  purchase 
for  said  library  standard  works  of  use  and  reference.  The  said 
commission  may  also  collect,  summarize  and  index  information,  of 
a  legislative  nature  relating  to  legislation  of  foreign  countries,  of 
states  of  this  country,  the  federal  government  and  municipalities. 
The  said  commission  may  also  make  such  investigations  into  statute 
law,  legislative  and  governmental  institutions  as  will  aid  the  legis- 
lature to  perform  its  duties  in  the  most  efficient  and  economical 
manner.  The  said  commission  is  also  hereby  authorized  and 
directed  to  co-operate,  during  sessions  of  the  legislature,  with  the 
secretary  and  superintendent  of  the  state  historical  society  of  Wis- 
consin, as  trustee  of  the  state,  with  a  view  to  a  joint  arrangement, 
by  which  the  needs  of  the  legislature  in  the  matter  of  general  books 
of  reference  may  be  met  to  the  fullest  possible  extent;  and  said 
commission  shall  give  such  space  within  its  rooms  to  books  brought 
to  the  capitol  by  said  society  for  such  purpose,  as  may  be  jointly 
agreed  upon  between  them.  The  librarian  of  the  state  library  and 
the  officers  of  state  departments  are  hereby  authorized  to  give  or 
loan  to  the  free  library  commission  for  the  use  of  the  legislative 
reference  room  such  books  and  documents  as  will  be  useful  in  that 
room.  The  said  free  library  commission  is  also  authorized  to  give 
or  loan  to  the  state  historical  society  or  to  the  state  departments 
any  books  and  documents  except  those  in  current  use  in  the  legis- 
lative reference  room. 

2.  The  free  library  commission  shall  employ,  during  each  legis- 
lative session  and  the  two  months  next  preceding  each  session, 
draughtsmen  and  such  help  as  may  be  necessary  for  the  draughting 
of  bills. 

Sec.  172-23,  Subd.  5  (Chap.  760,  sec.  5,  1913).  There  is  annually 
appropriated,  beginning  July  1,  1913,  twenty-one  thousand  eight 
hundred  dollars,  payable  from  any  moneys  in  the  general  fund  not 
otherwise  appropriated,  for  the  free  library  commission  for  carrying 
out  the  powers,  duties  and  functions  provided  by  law  for  the  legis- 
lative reference  department  of  said  commission. 

Pages  170-87,  infra,  give  a  more  detailed  account  of  the  organi- 
zation of  a  number  of  these  bureaus  than  can  be  learned  from  the 
mere  text  of  the  law. 

In  addition  to  the  bureaus  specifically  authorized  by  law,  as  was 
noted  in  the  text,  a  number  of  state  libraries  have  undertaken  legis- 
lative reference  work  without  specific  legislation  on  the  subject; 
see   tabular  statement   p.  384-85. 


366  Appendix 

2     L^ws    Relating   to   Other   Official   Bill-drafting 

AGEN'CIES.'* 

CALIFORNIA." 
Chapter  322.     (1913.) 
An  Act  to  establish  a  legislative  counsel  bureau  and  making  an 
appropriation  therefor. 

[Approved  May  26,  1913.) 

The  people  of  the  State  of  California  do  enact  as  follows: 

Sec.  1.  A  bureau  is  hereby  created  to  be  known  as  the  legislative 
counsel  bureau  which  shall  be  in  charge  of  a  chief  to  be  appointed 
by  and  act  under  the  supervision  of  a  board  as  herein  provided  to 
be  known  as  the  "legislative  counsel  bureau  board."  Said  appointing 
board  shall  consist  of  five  members,  one  of  whom  shall  be  the  governor 
or  any  one  acting  for  and  at  the  request  of  the  governor  in  that  behalf 
from  time  to  time.  Two  members  of  the  board  shall  be  chosen  by 
the  senate  from  its  members  for  a  term  of  four  years  subject  to  the 
power  of  the  senate  to  at  any  time  change  such  members.  Two 
members  of  the  board  shall  be  chosen  by  the  assembly  from  its 
members  for  a  term  of  two  years  subject  to  the  power  of  the  assembly 
to  at  any  time  change  such  members.  The  two  members  chosen 
by  the  senate  shall  not  be  of  the  same  political  party,  and  the  two 
members  chosen  by  the  assembly  shall  not  be  of  the  same  political 
party.  The  first  selection  of  said  members  chosen  by  the  senate 
and  assembly  respectively  shall  be  made  prior  to  adjournrnent  of 
the  fortieth  regular  session  of  the  legislature  of  the  State  of  California, 
said  terms  to  commence  upon  the  taking  effect  of  this  act;  provided, 
however,  that  if  either  or  both  the  senate  and  the  assembly  shall  fail 
to  make  such  selections  before  the  adjournment  of  said  session. 
then  the  governor  shall  make  such  selections  of  two  members  from 
each  house  so  failing  to  select  for  the  terms  herein  provided,  subject 
to  the  restrictions  hereinbefore  set  forth  as  to  party  affiliation  of 
members.  Subsequent  selections  by  the  respective  houses  shall 
be  made  at  the  regular  session  of  the  legislature  next  preceding  the 
expiration  of  said  terms  of  office  or  any  vacancy  therein,  and  incum- 
bents on  the  board  chosen  by  either  house  of  the  legislature  shall 
be  eligible  to  re-election.  Vacancies  in  the  board  occurring  during 
the  interim  between  sessions  of  the  legislature  shall  be  filled  by  the 
governor,  subject  to  the  above  restrictions  as  to  the  political  affilia- 
tions of  the  appointees,  such  appointees  to  hold  office  until  the 
succeeding   session   of   the   legislature.     The  chief  shall  be  chosen 

"  In  addition  it  should  be  said  that  in  practically  all  the  states  the 
attorney  general  is  the  legal  adviser  of  the  legislature  as  well  as  of 
the  state  officers.  As  to  the  desirability  of  having  the  bill-drafting 
done  at  his  office  confer  Reinsch  American  Legislatures,  p.  327-28. 

"  A  unique  and  interesting  experiment  in  bill-drafting  agencies 
apart  from  a  reference  library. 


Appendix  367 

without  reference  to  party  affiliations,  and  solely  on  the  ground  of 
fitness  to  perform  the  duties  of  his  office,  and  must  have  practical 
knowledge  of  the  substantive  and  remedial  law  of  the  State  of  Cali- 
fornia. He  shall  hold  office  for  the  term  of  four  years  unless  sooner 
removed  between  any  regular  or  special  session  of  the  legislature 
by  an  affirmative  vote  of  four  members  of  the  board  upon  charges 
made  with  a  public  hearing  and  published  findings  thereon,  or  by 
any  regular  or  special  session  of  the  legislature  without  notice  or 
trial,  two  thirds  of  the  members  of  each  house  voting  therefor. 

Sec.  2.  It  shall  be  the  duty  of  the  chief  of  the  legislative  counsel 
bureau,  and  the  work  of  that  bureau  to  prepare  and  assist  in  the 
preparation,  amendment  and  consideration  of  legislative  bills  when 
requested  or  upon  suggestion  as  herein  provided.  He  shall  devote 
his  whole  time  and  attention  to  forwarding  the  work  of  the  bureau, 
and  it  shall  be  his  duty  to  make  such  study  as  said  board  may  direct 
of  the  laws  of  this  state  and  other  states  as  may  the  better  enable 
the  bureau  to  do  its  work,  and  advise,  as  occasion  may  arise,  as  to 
needed  revision  of  the  statutes. 

Sec.  3.  The  legislative  counsel  bureau  and  its  chief  shall  prepare 
or  assist  in  the  preparation  or  amendment  of  legislative  bills  at  the 
suggestion,  in  writing  and  as  herein  set  forth,  of  the  governor  of  the 
state,  or  of  any  judge  of  the  supreme  court  or  of  the  district  courts 
of  appeal  or  of  the  superior  courts  of  the  state,  or  of  any  committee 
of  the  senate  or  assembly  of  the  legislature  of  the  state.  All  such 
suggestions  shall  set  forth  the  substance  of  the  provisions  desired 
or  which  may  be  needed  with  the  reasons  therefor.  Such  suggestion 
by  a  judge  of  the  supreme  court  shall  be  filed  with  the  clerk  of  that 
court.  Such  suggestion  by  a  judge  of  a  district  court  of  appeal 
shall  be  filed  with  the  clerk  of  that  court.  Such  suggestion  by  a 
judge  of  a  superior  court  shall  be  filed  with  the  clerk  of  the  district 
court  of  appeal  of  the  district  within  which  such  superior  court  is 
located.  When  such  suggestion  is  so  filed  with  the  clerk  of  the 
supreme  court  or  of  a  district  court  of  appeal,  that  clerk  shall  make 
and  send  to  the  permanent  office  of  said  bureau  a  certified  copy  of 
such  suggestion,  and  all  other  suggestions  shall  be  filed  at  said  office 
and  all  such  papers  so  received  at  such  office  shall  be  there  per- 
manently filed  and  recorded  and  copies  furnished  to  the  chief  of  the 
legislative  counsel  bureau;  all  provided,  that  from  the  time  the 
legislature  of  the  state  convenes  until  it  is  adjourned  finally,  the 
legislative  counsel  bureau  and  its  chief  shall  give  such  consideration 
to  and  service  concerning  any  bill  before  the  legislature,  which  cir- 
cumstances will  permit,  and  which  is  in  any  way  requested  by 
the  governor  of  the  state  or  the  senate  or  the  assembly  or  any  com- 
mittee of  the  legislature  having  such  bills  before  it  for  consideration 
and  after  such  adjournment  the  chief  of  the  legislative  counsel 
bureau  shall  still  remain  so  subject  to  such  request  by  the  governor 
of  the  state  as  to  any  bill  still  in  his  hands  for  rejection  or  approval 
or  other  action;  provided,  further,  that  neither  the  chief  nor  any 
employee  of  the  bureau  shall  oppose  or  urge  legislation;    but  the 


368  Appendix 

bureau  shall,  upvm  request,  and  so  far  as  may  be  in  its  power,  aid 
and  assist  any  member  of  the  legislature  as  to  bills,  resolutions 
and  measures,  drafting  the  same  into  proper  form  and  furnishing 
to  them  the  fullest  information  upon  all  matters  in  the  scope  of  the 
bureau.  Neither  the  chief  nor  any  other  employe  of  the  bureau 
shall  reveal  to  any  person  outside  thereof  the  contents  or  nature 
of  any  matter  which  has  not  become  a  public  record,  except  with 
the  consent  of  the  person  bringing  such  matter  before  the  bureau. 

Sec.  4.  The  chief  of  the  bureau  shall  be  in  attendance  on  all 
sessions  of  the  legislature  and  his  permanent  office  shall  be  in  the 
state  capitol  in  Sacramento,  but  he  may,  at  the  pleasure  of  said 
board,  maintain  temporary  offices  at  other  places  in  the  State  of 
California. 

Sec.  5.  The  said  board  shall  determine  the  salary  of  the  chief 
which  shall  be  payable  in  equal  monthly  installments,  and  of  all 
other  employes  of  said  bureau  and  shall  control  all  expenditures 
on  behalf  of  said  bureau.  The  members  of  said  board  shall  not 
receive  an\'  salary  or  compensation,  but  they  and  the  chief  of  the 
bureau  shall  be  repaid  all  actual  expenses  incurred  or  paid  by  them 
in  carrying  out  the  provisions  of  this  act,  and  shall  file  monthly  with 
the  state  board  of  control  itemized  and  sworn  statements  of  all  such 
expenses  so  incurred  or  paid  during  the  preceding  month. 

Sec.  6.  The  said  board  shall  furnish  said  bureau  with  such  pro- 
fessional, clerical  and  office  and  other  assistants  as  may  be  necessary 
and  incur  such  other  expenses  as  may  be  necessary'  for  the  effective 
work  of  the  bureau.  The  material  (including  books  and  other 
publications)  of  the  state  library  shall  be  made  available  to  said 
bureau,  and  all  the  officers  of  the  state,  the  University  of  California, 
and  all  departments,  commissions  and  bureaus  and  other  official 
state  organizations,  and  all  persons  connected  therewith,  shall  give 
the  chief  ready  access  to  their  records  and  full  information  and 
reasonable  assistance  in  any  matters  of  research  requiring  recourse 
to  them  or  to  data  within  their  knowledge  or  control.  The  bureau 
may  co-operate  with  any  of  the  educational  institutions  of  the  state 
in  any  manner  approved  by  the  said  board  and  such  institutions. 

Sec.  7.  All  books,  papers,  records  and  correspondence  of 
said  bureau  pertaining  to  its  work,  except  copies  furnished  to 
or  retained  by  the  chief  of  what  is  filed  at  the  permanent 
office  of  said  bureau,  and  except  memoranda  made  by  him,  shall 
be  public  records  and  shall  be  filed  with  and  recorded  and  kept  at 
the  permanent  office  of  said  bureau,  except  as  herein  otherwise 
provided. 

See.  8.  Ary  and  all  persons  receiving  service  from  said 
bureau,  as  herein  provided,  may  by  request  in  writing  filed  with 
the  bureau  have  all  their  personal  papers  and  correspondence 
temporarily  kept  private  and  confidential,  but  said  papers  and 
correspondence  shall  become  public  records  whenever  the  said 
board  or  the  legislature  shall  so  order  or  said  written  request  is  with- 
drawn. 


Appendix  369 

Sec.  9.  There  is  hereby  appropriated  out  of  the  general 
fund  not  otherwise  appropriated,  for  the  sixty-fifth  and  sixty-sixth 
fiscal  years,  the  sum  of  twenty  thousand  ($20,000)  dollars  for  carrying 
into  effect  the  provisions  of  this  act. 

CONNECTICUT. 
{General  Statutes.  Revision  of  1902,  title  2,  the  General  Assembly,  p. 90.) 

Sec.  37.  Duties  of  clerk  of  bills.  —  The  clerk  of  bills  shall  assist 
members  of  the  general  assembly  in  drafting  bills  for  public  acts 
and  resolutions  of  a  public  nature,  and  prepare  amendments  to  or 
substitutes  for  bills  or  resolutions  at  the  request  of  committees. 
Every  bill  or  resolution  favorably  acted  upon  by  any  committee  of 
the  general  assembly  shall,  before  being  reported  to  either  branch 
thereof,  be  first  submitted  to  the  clerk  of  bills,  who  shall  examine 
such  bill  or  resolution  in  respect  to  its  form,  for  the  purpose  of  avoid- 
ing repetitions  and  unconstitutional  provisions  and  insuring  accuracy 
in  the  text  and  references,  clearness  and  conciseness  in  the  phrase- 
ology, and  the  consistency  of  statutes.  He  shall  return  to  the  com- 
mittee submitting  it  any  bill  or  resolution  that  is  not  in  correct  form, 
with  such  corrections  as  he  may  propose  in  the  form  of  a  substitute 
or  as  amendments.  He  shall  keep  a  record  of  each  petition,  bill  for 
a  public  act,  and  resolution  introduced  in  £he  house  or  senate,  and 
such  record  shall  be  so  kept  in  detail  that  it  will  disclose  where  said 
petition,  bill,  or  resolution  may  be  found.  Such  record  shall,  at  all 
times,  be  open  to  the  inspection  of  members  of  the  general  assembly 
and  to  all  executive  State  officials.     (1901,  ch.  1,  sees.  2,  3,  4.) 

(Joint  rules  of  the  senate  and  house  of  representatives.  Part  of 
Rule  X.)2» 

X.  It  shall  be  the  duty  of  the  clerk  of  bills  to  prepare  bills  for 
public  acts  and  resolutions  of  a  public  nature  and  amendments  at  the 
request  of  any  committee  or  member  of  the  general  assembly,  and 
before  any  bill  or  resolution  is  favorably  reported  by  the  committee 
to  which  it  has  been  referred  it  shall  be  submitted  to  the  clerk  of  bills, 
who  shall  examine  such  bill  or  resolution  and  make  such  corrections 
therein  as  may  be  necessary  for  the  purpose  of  avoiding  repetitions 
and  unconstitutional  provisions,  and  of  insuring  accuracy  in  the 
text  and  references,  clearness  and  conciseness  in  the  phraseology, 
and  consistency  with  existing  statutes.  Whenever  a  bill  or  resolution 
not  bearing  the  indorsement  of  the  clerk  of  bills  as  having  been  so 
examined  shall  be  favorably  reported,  the  clerk  of  the  senate  or 
house,  as  the  case  may  be,  shall  immediately  transmit  the  same  to 
the  clerk  of  bills  for  examination  and  indorsment. 

XIII 21"  ....  It  shall  be  the  duty  of  the  committee,  before  any 
bill  or  joint  resolution  be  engrossed,  to  immediately  examine  the 
same  for  the  purpose  of  avoiding  repetitions  and  of  securing  clear- 
ness, conciseness  and  accuracy  in  the  text,  without  changing  the 


■ss,   conciseness  anu   accuracy   in   me   lexi 

2"  Register  and  Manual,  1913,  p.  119-120. 
"  ib.  p.  120-121. 


370  Appendix 

purport  thereof.  If  the  committee  find  that  any  correction  should 
lx»  made  in  the  text  or  references,  or  in  the  title  of  any  bill  or  jomt 
resolution,  it  shall,  within  five  session  days  after  the  passage  thereof, 
reix>rt  it  back  to  the  House  which  last  took  action  upori^  it,  with  the 
proposed  correction  in  the  form  of  an  amendment.  .   .  ." 

MASSACHUSETTS. 

The  Massachusetts  House  of  Representatives  on  January  2.  1913: 

Ordered,  That  the  Committee  on  Rules  be  authorized  to  employ 
clerical  assistance,  and  that  the  persons  so  employed  be  required  to 
assist  members  of  the  House  in  the  preparation  of  bills  and  re- 
solves, to  perform  such  clerical  services  as  may  be  required  b>'  the 
Committee  on  Bills  in  the  Third  Reading,  and  to  assist  the  clerks 
of  the  several  committees  in  drafting  notices  of  hearings,  in  having 
the  same  published,  in  sending  notices  to  persons  interested 
and  in  seeing  that  dates  of  hearings  are  inserted  in  the  bulletin; 
also  that  the  action  of  the  former  speaker  of  the  House,  in  employ- 
ing clerical  assistance  during  the  month  of  December,  1912,  to 
prepare  bills  and  resolves,  and  in  assisting  members-elect  in  pre- 
paring the  same,  with  a  view  to  facilitating  the  business  of  the 
incoming  House,  be  confirmed,  and  that  the  Committee  on  Riiles 
be  authorized  to  approve  bills  for  the  payment  of  said  clerical  service. 
(.House  Journal,  p.  42-43). 

(Massachusetts  Manual  .  .  .  oj  the  General  Court.     1913.) 
Rules  of  the  Senate. 

20.  All  bills  and  resolves  for  introduction  on  leave,  resolutions, 
and  petitions  for  legislation  accompanied  by  bills  or  resolves  cm- 
bodving  the  subject-matter  prayed  for,  and  all  orders  of  inquiry 
which  are  intended  for  presentation  or  introduction  to  the  Senate, 
and  all  reports  of  state  officers,  shall  first  be  deposited  with  the  clerk, 
and,  prior  to  their  presentation  or  introduction,  shall  be  submitted 
bv  him  to  the  committee  on  Rules  for  Inspection.  The  committee 
shall  examine  the  same  for  the  purpose  of  ascertaining  (1)  whether 
the  legislation  proposed  is  plainly  and  specifically  stated  or  already 
provided  for;  (2)  whether  such  bills,  resolves,  resolutions,  petitions 
and  orders  are  in  proper  form;  and  (3)  that  compliance  has  been  had 
with  the  rules  of  the  Senate  and  the  joint  rules  of  the  two  branches. 
Everv  such  matter  shall  be  returned  by  the  committee  on  Rules  to 
the  Clerk  not  later  than  the  third  legislative  day  succeeding  the  day 
of  its  deposit  with  him,  unless  consent  in  writing  to  the  longer  detention 
thereof  is  filed  with  the  Clerk  by  the  member  presenting  the  matter, 
and  it  shall  be  bv  the  Clerk  submitted  to  the  President  and  by  him 
laid  before  the  Senate  not  later  than  on  the  next  legislative  day 
after  it  is  so  returned.  Bills,  resolves  and  resolutions  which  have 
been  laid  before  the  Senate  and  introduced  shall  be  read,  and  shall 
be,  by  the  President,  with  the  consent  of  the  Senate,  referred  to  the 
appropriate  committees.  Prior  to  such  reference,  the  President, 
may,  in  his  discretion,  order  bills  and  resolves,  intended  for  intro- 
duction on  leave  or  filed  to  accompany  petitions,  and  resolutions. 


Appendix  371 

intended  for  introduction,  to  be  printed;  and  when  he  so  orders 
they  shall,  after  they  are  introduced,  be  printed  under  the  direction 
of  the  Clerk.  They  shall  retain,  during  all  subsequent  stages,  their 
original  numbers  and  shall  also  bear  such  new  numbers  as  may  be 
necessary.  Every  petition  which  is  not  accompanied  by  a  bill  or 
resolve  shall  be  deposited  with  the  Clerk  and  retained  in  his  custody 
until  a  bill  or  resolve  embodying  the  legislation  prayed  for  shall  be 
filed  with  him,  w-hen  he  shall  present  the  same  to  the  committee  on 
Rules,  to  be  disposed  of  as  provided  above.  The  Senate  may  at 
any  time  by  order  make  any  other  disposition  of  petitions  and 
remonstrances  in  the  hands  of  the  Clerk.  Petitions  and  remon- 
strances relating  to  matters  already  sent  to  committees  shall  be  by 
the  President  referred  to  the  appropriate  committees.  (28)  (1891; 
1893;    1894.) 

21.  The  Committee  on  Rules  shall  make  no  change  in  the  sub- 
stance or  form  of  any  matter  referred  to  them  in  accordance  with 
the  preceding  rule,  without  the  consent  of  the  member  depositing 
the  same,  but  upon  the  presentation  or  introduction  of  any  such  mat- 
ter to  the  Senate  it  shall  be  the  duty  of  some  member  of  the  com- 
mittee on  Rules,  acting  under  the  committee's  instruction,  to  suggest- 
any  failure  to  comply  with  the  rules,  and  to  ofTer  such  amendment 
or  to  propose  such  other  action  as  is  determined  proper  or  necessary 
by  the  committee  within  the  scope  of  its  duties,  as  above  set  forth. 
If,  upon  such  motion,  before  a  petition  is  referred  to  a  committee, 
the  petitioner  is  given  leave  to  withdraw  because  the  petition  is 
not  in  proper  form,  such  action  shall  not  be  deemed  to  be  a  final 
rejection  under  Rule  54,  and  shall  not  prejudice  the  right  of  a  mem- 
ber to  present  a  petition  for  the  same  object  conformably  to  the  rules 
of  the  Senate  and  the  joint  rules  of  the  two  branches. 

(1893;  —  Partly  embodied  in  Rule  20  of  1891.) 

33.  Bills  and  resolves  when  ordered  to  a  third  reading  shall  be 
referred  to  the  committee  on  Bills  in  the  Third  Reading,  whose  duty 
it  shall  be  to  examine  and  correct  them,  for  the  purpose  of  avoiding 
repetitions  and  unconstitutional  provisions,  and  of  insuring  accuracy 
in  the  text  and  references,  and  consistency  with  the  language  of  the 
existing  statutes;  but  any  change  in  the  sense  or  legal  efTect,  or 
any  material  change  in  construction,  shall  be  reported  to  the  Senate 
as  an  amendment.  Resolutions  received  from  the  House  or  intro- 
duced or  reported  in  the  Senate  shall,  after  they  are  read  and  before 
they  are  adopted,  be  referred,  in  like  manner,  to  the  committee  on 
Bills  in  the  Third  Reading.  When  a  bill,  resolve  or  resolution  has  been 
so  referred,  no  further  action  shall  be  taken  until  report  thereon  has 
been  made  by  the  committee.     (26,  50.) 

(1817;    1836;    1882;    1888;    1890;    1891.) 

NEW  YORK. 
{Consolidated  Laws  1909.     "Legislative  Law,"  v.  3,  p.  2116.) 
Sec.  24.     Drafting  and  revision  of  bills.  —  The  temporary  president 
of  the  senate  and  the  speaker  of  the  assembly  shall  appoint  such 


372  Appendix 

number  of  competent  persons  as  may  be  needed,  not  exceeding  three, 
whose  duty  it  shall  be  during  the  session  of  the  legislature,  on  request 
of  either  house  of  the  legislature  or  of  any  committee,  member,  or 
officer  thereof,  to  draft  bills,  examine  and  revise  proposed  bills,  and 
advise  as  to  the  consistency  or  other  effect  of  proposed  legislation. 
Such  persons  shall  receive  a  compensation  to  be  fixed  by  the  tem- 
poran.'  president  of  the  senate  and  the  speaker  of  the  assembles  and 
shall  be  entitled  to  their  clerical  and  other  necessar>'  expenses,  to 
be  approved  by  such  officers. 

(A  Committee  on  Revision  is  provided  for  in  the  Assembly  rules 
No.  19  and  the  work  assigned  to  it  is  done  by  the  bill-drafting 
department  though  the  rule  is  not  strictly  enforced.  Its  duties  are 
as  follows:) 

19.  The  Committee  on  Revision  shall  examine  and  correct  the 
bills  which  are  referred  to  it,  for  the  purpose  of  avoiding  repetitions 
and  unconstitutional  provisions,  insuring  accuracy  in  the  text  and 
references,  and  consistency  with  the  language  of  the  existing  statutes. 
It  shall  also  report  whether  the  object  sought  to  be  accomplished 
can  be  secured  without  a  special  act,  under  e.xisting  laws,  or  without 
detriment  to  the  public  interests,  by  the  enactment  of  a  general  law, 
provided  that  any  change  in  the  sense  or  legal  effect,  or  any  material 
change  in  construction,  shall  be  reported  to  the  House  as  a  recom- 
mendation and  not  as  an  amendment.  All  bills  other  than  Senate 
bills  which  have  not  been  amended  in  the  House  shall  be  so  referred 
prior  to  their  third  reading,  except  a  bill  which  has  been  made  a 
special  order  on  second  and  third  reading. 

Each  bill,  other  than  Senate  bills,  unless  otherwise  ordered  by 
the  House  or  endorsed  as  having  been  prepared  or  examined  by 
the  legislative  bill-drafting  department,  shall,  before  such  bill  is 
sent  to  the  printer,  be  delivered  by  the  clerk  to  the  revision  com- 
mittee. The  revision  committee  shall  examine  such  bills  and  shall 
have  the  power  to  correct  or  redraft  the  same  in  accordance  with 
the  provisions  of  this  rule  and  so  that  the  same  shall  conform  to 
the  provisions  of  rules  eight  and  nine. 


SOUTH  CAROLINA. 
(Code  1912.  VI.  p.  31:  Sec.  23.) 
Sec.  23.  Solicitors  to  Attend  Sessions  of  and  Assist 
IN  Prep.a,RATION  of  Acts.  The  Circuit  Solicitors,  or  so  many 
of  them  as  are  deemed  necessary  by  the  Attorney  General,  shall 
attend  the  sessions  of  the  General  Assembly,  and  shall,  under  his 
direction,  assist  the  Attorney  General  in  drawing  and  in  supervising 
the  engrossing  of  all  bills,  and  in  the  enrollment  of  all  Acts  and 
Joint  Resolutions  of  each  session;  shall  sec  that  the  work  is  done 
neatly,  promptly  and  correctly;  and  one  of  the  said  solicitors  shall 
certify  upon  each  Act,  before  it  is  ratified,  that  it  is  correctly  en- 
rolled. 


Appendix  373 

•  The  Attorney  General  shall  employ  such  clerical  assistance,  in 
drawing,  engrossing,  and  enrolling  Bills,  Resolutions,  and  Acts,  as 
he  may  deem  necessary. 

(Attorney  General  and  Solicitors.) 
Sec.  716.  Shall  Advise  General  Assembly.  He  shall,  when  re- 
quired by  either  branch  of  the  General  Assembly,  attend  during 
their  sessions,  and  give  his  aid  and  advice  in  the  arrangement  and 
preparation  of  legislative  documents  and  business,  and  shall  give 
his  opinions  upon  questions  of  law  submitted  to  him  by  either 
branch  thereof,  or  by  the  Governor. 

BILL  DRAFTING  IN  GREAT  BRITAIN.^^ 

[Extract   from  Legislative   Methods   and  Forms,    by   Sir   Courtenay 

Ilbert,    1901,    p.    84-95.] 

Parliamentary  Counsel's  Office. 

*  *  *  *  *  -^^ 

The  office  was  constituted  by  a  treasury  minute  dated  February  8, 
1869,  and  issued  when  Mr.  Gladstone  was  first  lord  of  the  treasury 
and  Mr.  Lowe  (afterwards  Lord  Sherbrooke)  was  chancellor  of  the 
exchequer.  Mr.  Thring  was  appointed  head  of  the  office,  with  the 
title,  revived  for  that  purpose,  of  parliamentary  counsel  to  the 
treasury,  and  was  given  a  permanent  assistant,  and  a  treasury 
allowance  for  office  expenses  and  for  such  outside  legal  assistance 
as  he  might  require.  The  whole  of  the  time  of  the  parliamentary 
counsel  and  his  assistant  was  to  be  given  to  the  public  and  they 
were  not  to  engage  in  private  practice.  The  parliamentary  counsel 
was  to  settle  all  such  departmental  bills,  and  draw  all  such  other 
Government  bills  (except  Scotch  and  Irish  bills)  as  he  might  be  re- 
quired by  the  treasury  to  settle  and  draw.  The  instructions  for 
the  preparation  of  every  bill  were  to  be  in  writing  and  sent  by  the 
heads  of  the  departments  to  the  parliamentary  counsel  through  the 
treasury,  to  which  latter  department  he  was  to  be  considered  re- 
sponsible. On  the  requisition  of  the  treasury  he  was  to  advise  on  all 
cases  arising  on  bills  or  acts  drawn  by  him,  and  to  report  in  special 
cases  referred  to  him  by  the  treasury  on  bills  brought  in  by  private 
members.  It  was  not  to  be  part  of  his  duty  to  write  memoranda 
or  schemes  for  bills,  or  to  attend  parliamentary  committees,  unless 
under  instructions  from  the  treasury. 

*  4:  *  *  *  * 

The  staff  of  the  parliamentary  counsel's  office  still  remains  prac- 
tically the  same  as  it  was  when  the  office  was  first  established  in 
1869.  The  permanent  staff  consists  of  the  parliamentary'  counsel 
and  the  assistant  parliamentary  counsel,  with  three  shorthand  writers, 
an  office  keeper,  and  an  office  boy,  and  these  together  run  what 
may  be  called  the  legislative  workshop.     The  amount  allowed  for 

"  "Exhibit  16"  in  62d.  Cong.  1st  Sess.  Sen.  Doc.  No.  7. 


374  Appendix 

payments  to  members  of  the  bar,  working  under  the  direction  and 
on  the  responsibility  of  the  parliamentan,'  counsel,  is  usually  esti- 
mated at  an  annual  sum  of  i'1,500;  but  this  amount  is  not  always 
expended.  Of  the  barristers  employed,  two  at  present  attend 
regularly  at  the  office,  doing  such  work  as  may  be  required  of  them. 
But  their  attendance  is  purely  voluntary' ;  they  are  under  no  per- 
manent engagement;  they  are  paid  by  fees  in  accordance  with  the 
amount  of  work  done  by  them,  and  they  have  their  own  chambers 
and  are  at  liberty  to  take,  and  do  take,  outside  work. 


Some  time  in  the  month  of  November  the  parliamentary  clerk  to 
the  treasury'  usually  sends  round  a  circular  to  the  other  departments, 
requesting  them  to  inform  the  treasury  what  departmental  bills 
are  likely  to  be  required.  All  formal  instructions  for  Government 
bills  are  sent  by  the  treasury'  to  the  parliamentary  counsel,  who 
is  thus  placed  in  the  position  of  being  draftsman  to  the  Government 
and  not  to  any  particular  department. 


The  procedure  adopted  on  receipt  of  the  instructions  will  vary 
according  to  the  character  and  importance  of  the  measure.  There 
will  usually  be  a  preliminan*-  conference  either  with  the  minister 
who  is  to  take  charge  of  the  bill,  or  with  the  permanent  head  of  his 
department,  or  with  both.  In  the  case  of  minor  departmental 
measures,  the  instructions  first  received  may  suffice  for  the  immediate 
preparation  of  a  draft  much  in  the  form  in  which  it  will  be  sub- 
mitted to  Parliament  as  a  bill.  In  the  case  of  more  important  and 
elaborate  measures,  the  stage  of  gestation  is  naturally  longer.  It 
is  often  necessary  to  prepare  memoranda  stating  the  existing  law, 
tracing  the  history  of  previous  legislative  enactments  or  proposals, 
or  raising  the  preliminar%-  questions  of  principle  which  have  to  be 
settled.  The  first  draft  may  take  the  form  of  a  rough  "sketch"  or 
of  "heads  of  a  bill."  The  original  draft,  whether  in  the  form  of  a 
bill  or  otherwise,  is  gradually  elaborated  after  repeated  conferences 
with  the  Minister,  and  with  those  whom  he  takes  into  his  confidence. 

A  measure  will  often  affect  more  than  one  of  the  Government 
departments,  and  in  those  cases  the  departments  affected  will  have 
to  be  consulted.  The  responsibility  for  seeing  that  this  is  done 
rests,  prirnarily,  with  the  initiating  department;  but,  as  a  matter 
of  convenience,  the  necessary  communications  are  often  made  by 
the  draftsman.  In  particular,  the  attention  of  the  treasury  ought 
to  be  directed  to  any  legislative  proposal  involving  expenditure  of 
public  money,  and  the  parliamentary  counsel,  as  an  officer  of  the 
treasur>',  is  charged  with  the  reponsibility  for  seeing  that  this 
duty  is  not  overlooked.  When  there  is  conflict  between  the  views 
of  different  departments  on  a  subject  of  legislation,  the  parliamentary 
counsel,  from  his  neutral  position,  may  often  find  it  possible  to  suggest 
a  mode  of  harmonizing  them.     And  his  general  responsibility  for  all 


Appendix  375 

Government  bills  enables  him  to  guard  against  the  risk  of  one  depart- 
ment bringing  forward  proposals  inconsistent  with  those  brought 
forward  by  another. 

When  the  draft  of  a  bill  has  been  finally  or  approximately  settled, 
it  is  usually  circulated  to  all  the  members  of  the  cabinet  for  their 
information  before  introduction  into  Parliament,  and  the  parlia- 
mentary counsel  supplies  the  executive  department  concerned  with 
a  sufficient  number  of  copies  for  this  circulation. 

****** 

Of  course,  however,  the  labors  of  the  draftsman  do  not  end  at 
this  stage.  The  publication  of  a  bill  brings  suggestions  for  amend- 
ment, which  may  be  forwarded  by  the  minister  or  department  for 
consideration.  After  the  second  reading  these  suggestions  take 
the  form  of  amendments  on  the  notice  paper,  which  will  have  to  be 
daily  scrutinized.  In  anticipation  of  the  committee  stage,  the 
draftsman  will  often  find  it  prudent  to  prepare,  for  the  purpose  of 
refreshing  his  own  memory,  and  for  the  use  of  the  minister  in  charge, 
notes  on  the  several  clauses,  explaining  the  origin  and  object  of  the 
proposals  which  they  embody,  referring  to  the  precedents  on  which 
reliance  can  be  placed  and  noting  the  arguments  which  may  be  used 
or  which  may  have  to  be  met.  As  the  committee  stage  approaches, 
and  when  it  has  been  reached,  the  amendments  will  be  the  subject 
of  discussion  with  the  minister,  and  alterations  or  consequential 
amendments  will  have  to  be  framed.  If  the  bill  goes  to  a  committee 
of  the  whole  house  or  to  one  of  the  grand  committees,  the  draftsman 
may,  perhaps,  be  expected  to  attend  the  debate  and  to  give  such 
assistance  as  he  can  in  the  way  of  framing  or  modifying  amendments 
or  meeting  points. 

Where  a  bill  is  much  amended  in  committee,  it  will  require  minute 
examination  after  the  committee  stage,  for  the  purpose  of  seeing 
whether  there  are  any  errors  to  be  corrected,  inconsistencies  to  be 
removed,  or  consequential  alterations  to  be  made;  and  amendments 
will  have  to  be  framed  for  insertion  at  a  later  stage.  Notes  will  also 
have  to  be  written  on  various  points;  and  the  literature  which  thus 
gathers  round  a  bill  often  attains  to  formidable  dimensions.  When 
a  bill  of  great  importance  is  in  progress,  it  requires  the  constant  and 
unremitting  attention  of  the  parliamentary  counsel,  to  the  exclusion 
of  all  other  work. 


The  minute  of  1869  directed  that  the  parliamentary  counsel  should 
report  in  special  cases  referred  to  him  by  the  treasury  on  bills  brought 
in  by  private  members.  But  at  present,  except  in  the  case  of  such 
references,  the  parliamentary  counsel  is  in  no  way  responsible  for 
the  preparation  or  criticism  of  such  bills. 

****** 

The  objects  aimed  at  by  Mr.  Lowe  when  he  established  the  par- 
liamentary counsel's  office  in  1869  appear  to  have  been  (1)  economy; 


370  Appendix 

(2)  better  control  over  Government  legislation  with  respect  both  to 
policy  and  to  finance;  and  (3)  improvement  of  the  form  of  statutes. 
All  these  objects  have  been  substantially  attained. 

BILL  DR-\FTIXG  IN  BRITISH  COLONIES. 
In  1895  a  series  of  questions  relating  to  statute  law  was,  at  the 
instance  of  the  Society  of  Comparative  Legislation,  London,  sent 
by  the  British  colonial  office  to  the  various  colonial  governments. 
Among  these  questions  were  the  following: 

III.  — Methods  of  Legislation. 

(a)  By  whom  are  drafts  of  legislative  measures  prepared?  Is 
there  any  oflicial  draftsman?  If  so,  by  whom  is  he  appointed,  to 
whom  is  he  responsible,  and  what  are  his  staff  and  duties?  Do  his 
duties  extend  to  measures  introduced  by  private  or  nonofficial  mem- 
bers of  the  legislative  body? 

The  replies  received  were  published  in  the  journal  of  the  Society 
of  Comparative  Legislation,  volumes  1-2,  and  new  series,  volumes 
1-2.  Those  received  in  answer  to  this  particular  question  from  the 
self-governing  colonies  are  as  follows: 

British  North  America. 

Dominion  oj  Canada.  —  For  each  house  of  the  Canadian  Parlia- 
ment there  is  a  law  clerk,  an  officer  whose  duties  include  those  of  a 
parliamentary  counsel  as  well  as  those  of  a  legislative  draftsman. 
The  law  clerk  of  the  senate  is  appointed  by  that  body.  The  law- 
clerk  of  the  lower  house,  in  which  the  great  majority  of  measures 
are  introduced  (10  out  of  12  of  the  ministers  usually  belonging  to 
that  house),  is  also  law  clerk  of  the  Government,  and  formerly  (before 
confederation)  held  a  separate  appointment  as  such  from  the  Go\-ern- 
ment.  He  is  appointed  by  Mr.  Speaker,  and  has  one  assistant.  The 
preparation  of  measures  for  private  members  is  not  part  of  the  law 
clerk's  duties. 

Newfoundland.  —  There  is  an  official  draftsman  called  the  law- 
clerk  of  the  legislature,  appointed  by  and  responsible  to  the  governor 
in  council.  His  duties  are  to  draft  all  bills  introduced  into  both 
branches,  including  those  introduced  by  private  members;  but  in 
practice  measures  are  frequently  drafted  by  private  members,  with 
or  without  the  assistance  of  the  law  clerk.  He  has  no  staff  or  assis- 
tants. The  minister  of  justice  has  a  general  super\ision  of  all  legis- 
lation, and  particularly  of  Government  measures. 

Australia. 

New  South  Wales.  —  1.  Drafts  of  legislative  measures  are  pre- 
pared by  the  members  of  Parliament  introducing  them,  or  by  some 
persons  acting  under  their  authority  or  by  their  direction. 

2.  There  are  two  official  draftsmen  named  "Parliamentary 
draftsmen." 


Appendix  377 

3.  They  are  appointed  by  the  governor  with  the  advice  of  the 
executive  council. 

4.  They  are  in  the  department  of  the  attorney  general,  and  are 
responsible  to  him. 

5.  The  staff  are  the  two  draftsmen  and  an  assistant. 

6.  The  duties  of  the  draftsmen  are  (1)  the  preparation  of  bills  for 
the  ministers  of  the  Crown;  (2)  the  preparation  of  bills  for  private 
members  on  the  request  of  the  attorney  general;  (3)  reporting  to 
ministers  on  the  introduction  of  any  bill  by  a  private  member  and 
on  its  passage  from  the  legislative  assembly  to  the  legislative  council; 
(4)  reporting  to  the  attorney  general  at  his  request  on  all  by-laws 
and  regulations  of  public  bodies  submitted  to  him  for  his  opinion  or 
approval;  (5)  reporting  on  any  special  matter  submitted  by  any 
minister  to  the  parliamentary  draftsman. 

7.  The  duties  of  parliamentary  draftsmen  extend,  as  above 
mentioned,  to  measures  introduced  by  nonofificial  members  of 
Parliament. 

Queensland.  —  Drafts  of  legislative  measures  are  prepared,  in 
case  of  Government  measures,  under  the  direction  of  the  department 
concerned,  and  usually  by  a  member  of  the  bar,  under  the  supervision 
if  desired,  of  the  Crown  law  office.  Measures  introduced  by  private 
members  are  usually  prepared  under  their  own  direction,  aid  being 
given  occasionally  from  the  Crown  law  office.  There  is  no  per- 
manent parliamentary  draftsman. 

South  Australia.  —  Drafts  of  legislative  measures  are  prepared  (1) 
by  the  attorney  general;  (2)  by  some  member  of  the  legal  pro- 
fession specially  selected  for  a  particular  bill,  (3j  by  some  competent 
official,  though  not  a  member  of  the  legal  profession,  who  has  special 
knowledge,  e.  g.,  the  clerk  of  the  parliaments,  the  principal  returning 
officer  of  the  Province,  the  military  commandant;  and  bills  of  supply 
and  appropriation  by  the  clerk  of  assembly;  (4)  public  bills  intro- 
duced by  private  members  are  drafted  by  themselves  or  by  whom 
the\'  appoint. 

There  is  no  official  draftsman. 

Victoria.  — -  Measures  for  submission  to  Parliament  are  prepared 
by  the  parliamentary  draftsman  under  the  direction  of  ministers. 
The  parliamentary  draftsman  is  an  officer  of  the  public  service, 
appointed  by  the  governor  in  council,  and  attached  to  the  depart- 
ment of  the  attorney  general,  to  whom  he  is  directly  responsible. 
His  duties  are  to  prepare  all  Government  bills  and  draft  amendments 
therein.  He  also,  when  desired,  drafts  bills  for  private  members, 
and  as  a  general  rule  all  such  bills,  by  whomsoever  drafted,  are 
examined  by  him,  and,  when  necessary,  specially  submitted  to  the 
attorney  general  or  the  premier  for  his  consideration. 

Western  Australia.  —  By  various  persons,  viz.,  the  attorney 
general,  a  minister,  or  by  a  private  member.  There  is  now  an  official 
draftsman,  appointed  by  the  governor  in  council,  on  the  recom- 
mendation of  the  attorney  general  to  whom  he  is  responsible.     He 


378  Appendix 

has  no  staff,  and  his  duties  are  indeterminate.     They  do  not  extend 
to  measures  introduced  by  private  members. 

As  a  critical  comment  upon  the  results  obtained  by  the  Par- 
liamentar>-  Counsel's  office  the  following  excerpts  are  printed  from 
The  Government  of  England  by  A.  Lawrence  Lowell,  \'olume  1,  pages 
356-358,  published  in  1908:  =3 

"A  public  bill  introduced  by  a  private  member  may  be  drafted 
by  him,  or  by  counsel  he  has  employed  for  the  purpose.  There  is 
no  systematic  super\ision  o\er  such  bills,  no  stage  at  which  their 
drafting  is  reviewed,  and  whether  well  or  ill  drawn,  they  are  not 
likely  to  be  much  improved  in  their  passage  through  Parliament. 
Government  bills,  on  the  other  hand,  which  relate  to  England,  and 
are  not  of  a  purely  formal  and  routine  character,  are  now  all  drafted 
by  the  Parliamentary'  Counsel  to  the  Treasury',  or  by  his  assistants 
under  his  direction.  They  are  prepared  under  instructions  from, 
and  after  consultations  with,  the  departments  concerned,  and  are 
sometimes  recast  several  times  before  they  are  introduced  into 
Parliament.  They  are  then  assailed  by  a  host  of  critics,  both  in  and 
out  of  the  Houses.  *  *  *  Amendments  and  new  clauses  are 
adopted  during  the  debates  in  committee.  These  changes  are 
usually  made  with  the  consent  of  the  minister  in  charge  of  the  bill, 
and  the  Parliamentary  Counsel,  as  well  as  the  permanent  head  of  the 
department  concerned,  is  often  present  under  the  gallery  to  give  his 
advice;  but  still  the  amendments  mar  the  fair  handicraft  of  the 
draftsman,  and  an  effort  has  to  be  made  to  improve  the  text  either  in 
the  report  stage  or  in  the  House  of  Lords.     *     *     * 

"The  Parliamentary  Counsel's  office  has  certainly  improved  the 
statutes  ver>'  much  by  making  them  more  concise,  uniform  and 
orderly;  but  their  form  is  far  from  perfect.  *  *  *  To  a  layman, 
and  even  to  a  foreign  lawyer,  an  English  act  is  often  difficult  to 
understand,  and  sometimes  misleading.  *  *  *  j^-  Joes  not 
seem  necessary  that  English  acts  should  be  quite  so  obscure  as  they 
often  are.  Nor,  judging  from  the  amount  of  litigation  that  some- 
times occurs  over  their  interpretation,  does  this  defect  appear  to  be 
always  counterbalanced  by  remarkable  legal  certainty.  The  most 
celebrated  case  is  that  of  the  Education  Act  of  1902.  *  *  *  The 
majority  of  the  Court  of  Appeal  was  of  opinion  that  the  statute  did 
not  oblige  (the  West  Riding  of  Yorkshire  to  make  certain  payments). 
The  House  of  Lords  rexersed  the  decision;  but  for  Parliament  to 
pass  the  Act  in  such  a  form  that  the  Court  of  Appeal  could  regard 
it  as  failing  to  effect  what  everybody  knew  to  be  one  of  its  main 
objects  is  surely  an  amazing  example  of  bad  drafting.  Nor  was  this 
the  result  of  amendments  in  the  House  of  Commons,  for  the  pro- 
vision in  question  went  through  unchanged;  and  although  in  this 
case  the  fault  is  said  not  to  lie  at  the  door  of  the  Parliamentary 
Counsel,  it  shows  none  the  less  the  defects  of  the  system." 

''  From  Chamber  of  Commerce  of  the  United  States  of  America 
Referendum  No.  0,  p.  8-10. 


Appendix  379 

The  constitutions  of  the  self-governing  dominions  of  the  British 
Empire  contain  provisions  that  the  procedure  of  legislation  is,  in 
the  absence  of  specific  direction  otherwise,  to  accord  with  parlia- 
mentary procedure  in  England.  It  follows  that  many  of  the  self- 
governing  dominions  have  officials  who  correspond  in  their  functions 
to  the  Parliamentary  Counsel  of  England. 

FRANCE. 

"In  France  the  method  of  legislation  stands  halfway  between  the 
American  and  the  English  methods.  The  ministry  studies  a  subject, 
prepares  a  bill  dealing  with  it,  and  launches  the  bill  into  the  Chamber. 
There,  the  bill  passes  into  the  hands  of  a  committee  which  amends 
and,  perhaps,  quite  remolds  it,  then  returning  it  to  the  Chamber 
with  an  elaborate  report."  [Bryce,  "Conditions  and  Methods  of 
Legislation"  in    University  and  Historical  Addresses  (1913),  page  94.] 

GERMANY. 
"The  German  Empire  makes  great  use  of  expert  commissions, 
such  as  that  which  elaborates  its  great  civil  code,  and  it  has  very 
competent  lawyers  upon  or  attached  to  its  official  staff.  *  *  * 
The  text  of  bills  of  such  magnitude  as  the  bill  for  consolidating  in- 
surance laws  *  *  *  is  generally  published  a  long  time,  — 
sometimes  several  years,  —  before  the  (legislative)  discussion  begins, 
so  as  to  give  the  government  an  opportunity  to  introduce  such 
modifications  as  may  seem  appropriate  after  full  consideration  of  the 
results  of  public  discussion."  [Ilbert,  Methods  of  Legislation  (1902), 
page  30]. 

LIST   OF    PUBLICATIONS  OF  LEGISLATIVE  REFERENCE 
DEPARTMENTS.^" 

Compiled  by  Grace  Sherwood,  Rhode  Island  State  Library.     Dec, 

1913. 

CALIFORNIA. 
Legislative    and    Municipal  Reference  Department." 

(Of  State  Library) 
Bulletin  No.  1.     Hints  on  Drawing  Legislative  Bills.     Issued  Dec.  1, 

1908.     12  p. 
Bulletin    No.   2.     River   Improvement   Laws   in   other  States   and 
Countries.     Issued  December  29,  1908.     29  p. 

^^  Only  material  in  print  is  meant  to  be  included.  All  bureaus 
have  on  file  numerous  MSS.  and  typewritten  reports,  bibliographies 
and  investigations.  Publishing  represents  but  a  very  small  portion 
of  any  legislative  reference  bureau's  activities. 

"  This  separate  "Department"  has  been  done  away  with  but  a 
Legislative  Reference  Librarian  is  retained. 


380  Appendix 

CONNECTICUT.^ 
Bulletin    No.    1.     List   of   References  to   Material  on   Employers' 
Liability  and  Workmen's  Compensation.     27  p.     1913. 

INDLANA. 

Legislative  Reference  Dep.artmext. 

{01  State  Library.) 

Bulk-tin  No.  1.     Local  Option.     2  p.,  maps:  1908. 

Bulletin  No.  2.     Index  to  Governors'  Messages.     1816-1851.      13  p. 
1908. 

Bulletin  No.  3.     Guarantee  of  Bank  Deposits.     12  p.     1908. 

Bulletin  No.  4.     Hints  on  Bill  Drafting.     9  p.     1910. 

Bulletin  No.  5.     Digest  of  the  Laws  of  Indiana  of  Special  Application 
to  Women  and  Children.     27  p.     1912. 

Bulletin  No.  6.     Inheritance  Taxation.     9  p.     1912. 

Bureau  of  Legislative  and  Administr.a.tive  Information 

Bulletin  No.   1.     United  States  and   Indiana  Constitutions,  anno- 
tated.    52  p.     1913. 

Bulletin  No.  2.     Drainage  Laws. 

IOWA. 
Legislative  Reference  Department. 
(In  Law  Librarian's  Charge.) 
Selected  List  of   References  on  the  Valuation  of  Public  Service 
Corporations. 

KANSAS. 

Legisl.\tive  Reference  Department. 

(Of  the  State  Library.) 

Bulletin  No.  1.     Unicameral  versus  Bicameral  Legislative   Bodies. 

1913. 

MASSACHUSETTS. 
(No  Separate  Department.) 
Foreign  Laws  in  the  State  Library.      311  p.     1911. 
Hand-list  of  .American  Statute  Law.     634  p.     1912. 

MICHIGAN. 

Legislative  Reference  Department. 

(Of  State  Library.) 

Bulletins. 

Constitution  of  the  State   of    Michigan,   1850,    annotated    for   the 

L'se  of  the  Constitutional  Convention  of  1907,  Sept.,  1907.      (No. 

1.)  78  p. 

**  Most  of  the  items  given  under  Connecticut  in  the  list  in  Spec. 
Libs,  for  Dec.,  1912,  were  typewritten,  not  printed. 


Appendix  381 

First  State  Constitution,  1835;  Proposed  Constitution  of  1867;. 
Proposed  constitution  of  1873.     Sept.,  1907.     (No.  2.)     69  p. 

Local,  special  and  private  Legislation;  Municipal  Charters;  Guber- 
natorial veto;  Initiative  and  Referendum;  —  as  provided  for  and 
regulated  by  the  Constitutions  of  the  several  States.  Sept.,  1907. 
(No.  3.)  24  p. 

Bulletin  No.  4.  Legislative  Reference  List  Employers'  Liability 
and  Workmen's  Compensation.     1911.     17  p.    _ 

Bulletin  No.  5.  Laws  of  the  various  States  relating  to  a  Minimum 
Wage  for  Women  and  Minors.     1913. 


Laws  of  the  various  States  relating  to  Presidential  Primaries.     Feb., 

1912.     25  p. 
Laws  of  the  various  States  relating  to  Vagrancy  (with  Bibliography) 

June,  1910.     29  p. 
History  of  Railroad  Taxation  in  Michigan  (with  Bibliography)  by  W. 

O.  Hedrick.     1912.     69  p. 


Constitutional  Compilations:  Provisions  of  various  State  Constitu- 
tions compared  with  similar  Provisions  in  the  Michigan  Constitu- 
tion of  1850.     1907.     28  nos. 

Amendment  and  Revisions.     30  p. 

Boundaries,  Seat  of  Government  and  Departments.     22  p. 

Bribery  and  Corruption.     16  p. 

Education  and  Public  Schools.     80  p. 

Elections.     70  p. 

Eminent  Domain.     13  p. 

Executive  Department.     103  p. 

Exemptions  (from  Taxation.)     13  p. 

Finance  and  Taxation.     81  p. 

Impeachment  and  Removal  from  Office.     31  p. 

Judicial  Department.     252  p. 

Labor  Interests.     10  p. 

Legislative  Department.     284  p. 

Liquor  Traffic:  Provisions  for  its  Regulation  or  Suppression. 
5  p. 

Military  Affairs.     28  p. 

Miscellaneous  Provisions  and  Addenda.     60  p. 

Municipal  Corporations:  Provisions  relating  to  Counties, 
Townships,  Cities  and  Villages.     119  p. 

Preambles  and  Bills  of  Rights;  Provisions  which  have  no  cor- 
responding Sections  in  the  Michigan  Constitution.     37  p. 

Private  Corporations.     114  p. 

Public  Lands  and  Forest  Protection.     16  p. 

Rights  of  Women.     4  p. 

State  officers ;   Salaries;   State  Boards  and  Institutions.     101  p. 


382  Appendix 

Mortgage  Taxation  and  Commission  Government:  reprinted  articles 
by  M.  A.  Schaffner  for  the  Grand  Rapids  (Mich.)  Evening 
Press.     1908.     18  p. 

MISSOURI. 

Legislative  Reference  Department. 
(Of  Library  Commission.) 

Classified  Index  of  Bills  prepared  for  47th  General  Assembly,  Mis- 
souri.    March  17,  1913.     34  p. 

NEBRASKA. 

LEGISL.A.TIVE   REFERENCE   BUREAU. 
(Under  Board  of  Regents,  University  of  Nebraska). 

Bulletin  No.  1.     Nebraska  Legislative  Reference  Bureau.     July  20 

1912. 
Report  on  the  Nebraska  State  Archives. 
Nebraska  Blue  Book  for  1913. 

NEW  YORK. 

LEGISLATIVE   REFERENCE  SECTION.  ' 
(Of  State  Library.) 
Legislative  Bulletins. 

Nos.  1-7,  9-11.  13,  15,  18,  21,  24.  28,  32,  36,  38.     Index  of  Legis- 
lation, 1890-1908. 
Nos.  16,  19,  22,  25,  29,  33,  39.     Review  of  Legislation,  1901-1908. 

Chapters  also  issued  separately. 
Nos.  17,  20,  23,  27,  31,  35,  37.     Digest  of  Governors'  Messages, 

1902-1908. 
No.  8.     State  Finance  Statistics,  1890  and  1895.      58  p.     1897. 
No.  12.     Trend  of  Legislation  in  the  United  States.     40  p.       1900. 
No.  14.     Taxation  of  Corporations  in  New  York,  Massachusetts, 

Pennsylvania  and  New  Jersey.     198  p.      1901. 
No.  26.     Index  of   New  York  governors'   messages,    1777-1901. 

1906. 
No.     30.     Legislative  Reference  Lists.     44  p.     1906.     Contains 
Lists  on  Life  Insurance,   Direct  Nominations,  Employment  of 
Blind  and  Inheritance  Tax. 
No.  34.     A  Summary  of  the  Compulsory  Attendance  and  Child 
Labor  Laws  of  the  States  and  Territories  of  the  United  States. 
114  p.      1907. 
No.  40.     American  Ballot  Laws,   1888-1910.     220  p.      1911. 

(Beginning  with  No.  20,  the  three  or  more  bulletins  of  each 
year  are  also  issued  in  one  volume  under  title  "Yearbook  of 
Legislation.") 


Appendix  383 

Reference  Lists. 
No.  6.     Central  Control  of  Police.     8  p.     1899. 

Rev.  ed.     8  p.     1900. 

No.  7.     Municipal  Home  Rule.     8  p.     1900. 

Ed.   2.     8  p.     1904. 

No.  8.     Municipal  Ownership.     8  p.     1900. 
No.  12.     Corrupt  Practices.     7  p.     1905. 

NORTH  DAKOTA. 

Legislative  Reference  Department, 

(Of  Public  Library  Commission.) 

Bulletin  No.  1.  Permanent  State  Tax  Commissions.     96  p.     1910. 

Bulletin  No.  2.  Good  Roads:     An  Outline  of  State  Road  Systems. 

96  p.     1910. 

Bulletin  No.  3.  Budgetary  Laws.     20  p.     1912. 

OHIO. 

Legislative  Reference  Department. 
(Of  State  Library.) 
State  Library  published: 

Need  of  A  Legislative   Reference  Department  for  Ohio.     Dec, 

1909.     16  p. 
Initiative  and  Referendum.     1908.     22  p. 

Supp.     Feb.  15,  1909. 

13  p. 
Ohio  Canals.     1910.     16  p. 
Legislative  Reference  Department: 

Initiative  and  Referendum.     1911.     79  p. 

Nomination  and  Election  of  United  States  Senators.     1911.     15  p. 

Workmen's   Compensation  or  Insurance  Against  Loss  of  Wages 

Arising  Out  of  Industrial  Accidents.     1911.     49  p. 
Public  Service  Commission  Laws;    A  Comparison  of  the  Laws  of 
New  York,  Wisconsin,  Massachusetts,  New  Jersey  and  Mary- 
land.    1911.     18  p. 
Regulation  of  Public  Utilities;    A  Comparison  of  the  New  York 
and  the  Wisconsin  Public  Utilities  Bills.     1911.     36  p. 

PENNSYLVANIA. 

Legislative  Reference  Bureau. 
Bulletins: 

Bill  Drafting.     1912.     21p. 

Constitution  of  Pennsylvania,  Analytically  Indexed  and  with  Index 

of  Prohibited  Legislation.     1912.     118  p. 
Special  Legislation  in  Pennsylvania.     1912.     11  p. 


384 


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state  Library.    (Hartford.) 
State  University,  Boulder,  Colo. 
State  Library.  (Atlanta.) 
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>     >     ^ 


^^ 


Erratum  :  Page  385.  The  State  names  in  first  column 
from  Mo.  to  Wash,  should  be  dropped  one  line  lower. 


386  Appendix 

RHODE   ISLAND. 

Legislative  Reference  Bureau. 
(Of  State  Library.) 

Bulletin  Xo.  L     The  Veto  Power  in  the  Several  States.     1908.     57  p. 

Bulletin  No.  2.     Automobile  Laws  of  the  New  England  States,  New 
York,  New  Jersey  and  Pennsylvania.      190S.     106  p. 

Bulletin  No  3.     Summary'  of  the    General    Banking    Laws   of   the 
Commercial  States.     1908.     334  p. 

Bulletin  No.  4.     Officers,  Boards  and  Commissions  of  Rhode  Island. 
1911.     69  p. 

Bulletin  No.  5.     Employers'  Liability  and  Workman's  Compensa- 
tion.    1912.     69  p. 

Bulletin.     No.  6.     General  Constitutional  and  Statutorv  Provisions 
Relative  to  Suffrage.     1912.     99  p. 

Circular  No.  1.     Rhode  Island  Towns  and  Cities.     Expenditures  for 
Highways  and  Bridges,  1898-1909.     1911.     6  p. 

SOUTH    DAKOTA. 

Legislative  Referexce  Division. 
(Of  Department  of  History.) 
Bulletin  No.  1.     Digest  of  Governors'  Messages  of  South  Dakota. 
Bulletin  No.  2.     Digest  Constitutional  Debates  and  Supreme  Court 

Reports. 
Bulletin  No.  3.     Legislative  Handbook. 
Bulletin  No.  4.     Workmen's  Compensation. 
Bulletin  No.  5.     Prisoners  on  Public  Highways. 

TEXAS. 

Legislative  Reference  Division. 
(Of  State  Library-.) 
Bulletin  No.  1.     Finding-List  of  Books.     1911.     51  p. 

VERMONT. 

Legislative  Reference  Department. 
(Of  State  Library.) 
Finding  List  Legislative  Reference  Department.     1912.     Ill  p. 

VIRGINIA. 

Legisl.\tive  Reference  Department. 
(Of  State  Library.) 

Legislative  Reference  Lists.     1908. 

1910. 
1912. 


Appendix 


387 


No.  7. 
1906. 
No.  8. 


Bulletin  No.  1. 

1906. 
Bulletin  No.  2. 
Bulletin  No.  3. 

Expenditures 
Bulletin  No.  4. 
Bulletin  No.  5. 

1906. 
Bulletin  No.  6. 

1906. 
Bulletin 

19  p. 
Bulletin 

1906. 
Bulletin  No.  9. 
Bulletin  No.  10. 
Bulletin  No.  11. 

(Out  of  print.) 
Bulletin  No.  12. 
Bulletin  No.  13. 

37  p.  1908. 
Bulletin  No.  14. 
Bulletin  No.  15. 
Bulletin    No.    16 

1908. 
Bulletin  No.  17. 
Bulletin  No.  18. 
Bulletin  No.   19. 

(Out  of  print.) 
Bulletin   No.   20. 

print.)  70  p. 
Bulletin  No.  21. 

vised.)  43  p. 
Bulletin  No.  22. 
Bulletin   No.  23. 

vised.)  86  p. 
Bulletin  No.  24. 
Bulletin  No.  25. 


WISCONSIN. 

Legislative  Reference  Library. 
(Of  Free  Library  Commission.) 
Railway  Co-employment.     (Out  of  print.) 


27 


Lobbying.     (Out  of  print.)     31  p.     1906.  _ 
Corrupt  Practices  at  Elections:   Contributions  and 

(Out  of  print.)     35  p.     1906. 
Exemption  of  Wages.     (Out  of  print.)     39  p.     1906. 
Municipal  Electric  Lighting.     (Out  of  print.)     22  p. 

Trust  Company  Reserves.     (Out  of  print.)     24  p. 

Taxation  of  Trust   Companies.     (Out  of  print.) 

Municipal  Gas  Lighting.     (Out  of  print.)     18  p. 

Bovcotting.     (Out  of  print.)     26  p.     1906. 
Blacklisting.     (Out  of  print.)     22  p.     1906. 
The  Initiative  and  Referendum:  State  Legislation. 

1907. 
The  Recall.     (Out  of  print.)     21  p.     1907. 
Primary  Elections:   The  Test  of  Party  Affiliation. 


Proportional  Representation. 
Juvenile  Courts.     41  p.     1908. 
Telephones:     Interchange    of 


29  p.     1908. 
Services.     20    p. 


Mortgage  Taxation.     60  p.     1908. 

Municipal  Home  Rule  Charters.     38  p.     1908. 

Tenement  House  Legislation:  State  and  Local. 
1908.     70  p. 

Accident   insurance  for  Workingmen.     (Out   of 
1909. 

The  Initiative  and  Referendum.     (No.   11   Re- 
1910. 
Certified  Public  Accountants.     44  p.     1910. 

Corrupt   Practices  at   Elections.      (No.   3     Re- 
1911. 

State  Legislation  Concerning  Tuberculosis.     1912. 
The  Initiative  and  Referendum  State  Legislation 


Legislative  Reference  List. 


No.  1.     Rate  Regulation. 
No.  2.     State  Aid  for  Roads. 
No.  3.     State  Civil  Service. 


388  Appendix 

5.     BIBLIOGRAPHY   OF   LEGISLATIVE   REFER- 
ENCE  WORK. 

(A  few  of  the  more  important  titles  are  starred  [*].) 

BOOKS  AND   ARTICLES. 

General  and  Descriptive. 

Beard,  Charles  F. 

American  Politics  and  Government.     1911.     p.  540-43. 
Baxter,  Rex  M. 

Legislative  reference  library.     {Arena,  v.  39.  p.  674-81.     June, 
1908. 
Bell,  Finley  F. 

Work  and  Program  of  the  Illinois  Legislative  Reference  Bureau. 
(In  Pub.  Lib.,  19:   59-64,  Feb.,  1914.) 

.A.  discussion  following  the  reading  of  this  paper  at  the  1913  meeting  of  the 
Illinois  Library  .Association  in  which  Miss  Mary  J.  Booth,  John  B.  Kaiser,  C.  B. 
Lester,  and  Dr.  Herbert  Putnam,  and  Mr.  F.  W.  Schenk  took  part.  It  is  repro- 
duced in  part  in  Public  Libraries  (above)  and  in  the  .\pril.  1914,  number  of  the 
Law  Library  Journal. 
Brigham,  Johnson. 

Legislative  reference  work  without  an  appropriation.  (A.  L.  A. 
Bui.  1:  200-12.     July,  1907.) 

*  Brindley,  John  E. 

Development     of     Legislative     reference     movement.     {Iowa 

Journal  of  History  and  Politics,     v.  7;    132-41.     Jan.,  1909.) 
Bruncken,  Ernest. 

.Aid  in  legislation,   California  State  reference  bureau.     {Sunset 

Magazine,  v.  19:  160.) 
.     Defective    methods   of    legislation.     {Amer.    Pol.    Sci.    Rev. 

May,  1909.     p.  167-79.) 
.     The  legislative  reference  bureau.    ( News&'  notes  of  California 

libraries,     v.   2:  96-105.     Feb.,   1907.) 
.     Sociological  department  of  California  state  library.     (  News 

6*  notes  of  California  libraries,  Apr.,  1909,  4  p.) 

*  Bryce,  James. 

The  methods  and  conditions  of  Legislation  in  our  time;  an 
address  delivered  before  the  New  York  State  Bar  Association, 
Jan.  24,  1908.  {Col.  Law  Rev.  8:  157-71,  Mar.,  1909.  Also  in 
N.  V.  S.  Bar  Assn.  Reports,  31:  156  sq.,  reprinted  in  his  Univer- 
sity and  Historical  Addresses,  p.  73-106;  1913. 
Campbell,  Robert  A. 

Legislative  and  municipal  reference  department.  ( News  & 
notes  of  California  libraries.     Oct.,  1910,  p.  534.) 

*  Chamber  of  Commerce  of  the  United  States  of  America. 

Referendum  no.  6  on  the  question  of  the  establishment  by  Con- 
gress of  a  Bureau  or  Bureaus  of  Legislative  Reference  and  Bill- 
drafting.     [20  p.]     Washington,  D.  C.     Nov.  8,  1913. 


Appendix  389 

Partially  reprinted  in  The   Nation's  Business,   Nov.  15,  1913. 

p.  4-5. 

An  important  and  non-partizan  presentation  of  data  though  not  up  to  date 
on  all  matters  of  legislation  relating  to  this  work.  The  referendum  by  the  Cham- 
ber was  completed  Dec.  23,  1913,  and  resulted  in  a  vote  of  625  for  and  16  against 
the  proposition. 

♦Chamber  of  Commerce  of  the  United  States  of  America. 

Two  Important  Referenda  Concluded.  {Nation's  Business 
2:  4;  Jan.  15,  1914. 

*  Cleland,  E. 

Indiana  legislative  reference  dept.      {Spec.  Libs.   v.   1:  58-60. 
Oct.,  1910.     Bib.  p.  60-61. 
.     Legislative  Reference.     (In  Am.  Pol.  Sci.   Rev.  7:   444-47, 

Aug.,  1913.) 

A  review  of  1913  Legislation  relating  to  legislative  reference  bureaus;   the 
error  relating  to  Illinois  is  corrected  in  the  Nov.,  1913  issue  p.  652.) 
.     Legislative  reference.     {Nat.  Mun.  Rev.  v.  2:  729-30.) 

A  review  of  1913  legislation.  nt^    ^  ■,  \ 

.     Legislative  reference.     {Amer.  Pol.  Set.  Rev.  v.  4:  409-11.) 

Comment   on   the   work   of   the   Wisconsin    Legislative    Reference 

Library.      Yale  Review,  Nov.,  1907.     p.  233-36.) 
Commons,  John  R. 

One  way  to  get  sane  legislation.     {Amer.  Rev.  of  Rev.     v.  32: 

722-23.     Dec,  1905.) 

Partially  reprmted  in  Charles  A.  Beard's  Readings  in  Amer.  Govt.  1910.  p. 
473-74. 

Congressional  Legislative  Reference  Department.    [From  a  report  to 

Congress  by  Herbert  Putnam,  Librarian  of  Congress.]     (In  Spec. 

Libs.  3:  13-16.     Feb.   1912.) 

Danger    in    the    movement    for    the    establishment    of    legislative 

and  municipal  reference  departments.     {Spec.    Libs.     v.  2:  33. 

Apr.,  1911.) 

*  Dudgeon,  Matthew  S. 

The  Law  that  Stands  the  Test.     (A.  L.  A.  Bui.  7:  206-10.) 

Kaaterskill  Conference  Proceedings.     1913. 

* .     The  Wisconsin  legislative  library. 

{Yale  Review,     v.  16:  288-95.     1907. 
Education  for  legislators.     {Bost.  Transcript,  Dec.  6,  1905.) 

From  Rev.  of  Reviews:  also  in  Nebraska  State  Journal,  Mar.  30,  1906. 
Establishment  in  Indiana.     (Ind.  State  Library  Bui.  14:   1-2,  June, 

1906.) 
Fisher,  E.  A. 

Legislative  reference.     {Amer.  Pol.  Sci.  Rev.  v.  3:  223-26,  My., 
1909.) 
Flack,  Horace,  E. 

Scientific  assistance  in  Law  Making.  (Am.  Pol.  Sci.  Assn. 
Proceedings,  Feb.  1914,  in  press.) 

*  Freund,  Ernst. 

The  Problem   of   intelligent   legislation.     (Am.    Pol.  Sci.  Assn. 
Proceedings,  v.  4:  69-79.) 
Good  check  for  the  riot  of  legislation. 
World's  Work,  11:  6812-13,  Nov.  1905. 


390  Appendix 

Howe,  Frederic  C. 

Wisconsin,  an  experiment  in  Democracy.     1912.     p.  46-48. 
Ideal  state  librarv  in  an  ideal  location. 

{Lib.  J.  V.  30:  C248-C51.     Sept.,  1909. 
•  Imhoff,  One  Mar>'. 

Cataloguing   in   Legislative   Reference   Work.     {Spec.  Libs.   3: 
149-54,  Sept.,  1912. 

Also  in  A.  L.  A.  Proceedings,  1912.     p.  238-15;  and  reprinted  separately. 
Johnston,  R.  H. 

Library  of  the  bureau  of  railway  economics.     {Spec.  Libs.  v.  3: 
1-4,  Jan.,  1912. 
Jones,  Chester  Lloyd. 

Economical  legislation  in  Wisconsin.     {Pearson's  v.  25:  517). 

• .     Statute  law  making  in  the  L'nited  States.     Bost.     1912. 

(Chap.  1,  p.  20-27.) 

.     The  use  of  expert  aid  in  the  betterment  of  American  Statute 

Law.     (Am.  Pol.  Sci.  Assn.  Proceedings,  Feb.,  1914,  in  press.) 
Kaiser,  John  Boynton. 

Discussion  of  the  Illinois  Legislative  Reference  Bureau  Law. 
{Pub.  Libs.  19:  62-64,  Feb.,  1914. 

.     Law  and  Legislative  Library'  Conditions  in  Texas.     {Texas 

Magazine  5:  35-38,  Feb.,  1912. 

Also  in  La'd!  Library  Journal  4:  27-30,  Jan.,  1912. 

.     A    National    Legislative    Reference  Bureau.     (The    Nation, 

Mar.  30,  1911.     p.  315.) 
.     Scientific  Law  Making.     (The  Independent.  73:  641-42,  Sept. 

11,  1913.) 

.\  brief  survey  of  1913  Legislation  relating  to  legislative  reference  bureaus. 

.     The  special  library  and  the  librarv  school.      (In  Lib.  Jour. 

37:  175-79,  Sept.,  1912.) 
Kennedy,  J.  P. 

Legislative    Reference    Work    and    its    Opportunities.      (Nat. 
Assn.  State  Librarians.)      (A.  L.  A.  Bui.  2:  278-84.) 
King.  J.  E. 

Province  of  the  state  library  when  restricted  to  the  service  of 
the  legislature.     (A.  L.  A.  Bui.  v.  3:  292-94.     Sept.,  1909.) 
Lapp, John  A. 

Legislative  reference  dept.    {Public  Officials  Mag.    Indianapolis. 

July,  1910.     7  p.) 

Legislative  clearing-house.     {Nation,  Dec.  14,  1905.     v.  81:  478.) 

Also  in  N.  Y.  Evening  Post,  Dec.  8.  1905;  see  also  communication  m  issue  for 

Dec.  16.  1905.  by  Alfred  W.  Booream. 

Legislative  reference  bureau;  symposium.     (City  Club  of  Chic.  5tt/. 

Dec.  9,  1908.     v.  2:  195-206.) 
*Legislative  Reference  Bureaus.     (Discussion  in  Am.  Pol.  Sci.  Assn. 
Proceedings,  Feb.,  1914,  in  press.) 

By  Dr.  McCarthy,  Mr.  Lapp  and  Professor  Merriam. 

Legislative   Reference   "scheme."     (In  Spec.  Libs.   4:    125-26, 
June,  1913.) 

Reprinting  an  editorial  from  the  New  York  Journal  of  Commerce  of  AprU  19, 
1913. 


Appendix  391 

Legislative    Reference    Section.     [Texas    State    Library]   (In    News 
Notes  of  Texas  Libraries  1:  3-4,  Nov.,  1910.) 

Legislative   reference   work   and    the   reporting   of   legislation;  dis- 
cussion.    (A.  L.  A.  Bui.   v.  4:  703-13,  Sept.,  1910.) 

Legislative    reference    work    in    Wisconsin.     {World's     Work.      v. 
18:   11529,   May,   1909.) 

Lester,  Clarence  B. 

A  Legislative  Expert.      {Brown  Alumni  Monthly,  April,  1906.) 

.     Legislative  reference   (Ind.  State  Lib.   Bui.    17:    1-2,    Oct., 

1906.) 

.     Legislative    reference    work    and    the    law    library.     {Law 

Library  Journal.     Oct.,  1908.     6  p.) 

* .     The   present   status   of   Legislative   Reference   Work.      (In 

A.  L.  A.  Bui.  7:  199-202.) 

Kaaterskill  Conference  Proceedings.     1913. 
Lobbying,  old  and  new.     {London  Times,  Apr.  14,  1906.) 

Also  in  Weekly  Edition,  April  20,  1906. 
McCarthy,  Charles. 

Federal  legislative  reference  department.  {Survey,  v.  28:  298. 
May  18,  1912. 

.     The  future  of  the  State  library.     {Proceedings  of  National 

Assoc,  of  State  Libraries.     June  30,  1906.     8  p.) 

•     Legislative  Reference  Bureau.     (Chicago  City  Club  Bui.  Dec. 

9,  1908.     5  p.) 

.     Legislative  reference  work.     {Lib.  J.     v.  30:  242.) 

* .     Remedies  for  corrupt  and  inefficient  legislation.      (Amer. 

Pol.  Sci.  Assn.     Proceedings  v.  4:  80-102.) 

* -■     The  Wisconsin  idea,  N.  Y.     1912.     (Chap.  8,  p.  196-232.) 

McKirdy,  James. 

Legislative    Reference    Bureau    of    Pennsylvania.        (58    Pitts. 
L.  J.     9-16,  Dec.  17,  1910;   also  in  59  Penn.  L.  Rev.  151-64,  Dec. 
1910.) 
Merchants  Association  of  New  York  City. 

List  of  business  or  commercial,  civic,  board  of  trade,  municipal 
legislative  reference  libraries  and  departments  of  public  and  other 
libraries  devoted  to  these  topics.     June,  1909.     2  p. 
Merwin,  Samuel. 

Putting    the    Lobbyists    on    the    Square.     {Success    Magazine, 
Feb.,  1907.) 
Michigan  —  State  Library. 

Legislative  Reference  Department.  (In  its  Quarterly  Bulletin 
4:   11-12,   Apr.-June,   1913. 

Minnesota   tax   commission  library.     {Spec.  Lib.  May,  1911.     v.  2: 
41-42.) 

Mowry,  Don  E. 

Growing  complexities  of  Legislation.  (77th  General  Assembly 
Record  of  Ohio.     Jan.  27,  1906.) 

A  national  museum  of  comparative  legislation.  {Social  Service, 
Oct.,  1906.) 


392  Appendix 

New  and  important  phase  of  library  work.     {Wis.  Jour,  of  Educ. 

June.  1906.) 
Official  legislative  adviser.     {Outlook  Feb.  IS,  1905.) 

Owen,  Robert  L.  ,  ^        r^  ,    c  •     \ 

Proposed   National   Reference   Bureau.     (Am.    Pol.   Sci.   Assn. 
Proceedings,  Feb.,  1914,  in  press.) 

•Phillips,  John  B.  ^  ,      ^    o    j- 

Scientific  assistance  in  law-making.     (  Utuv.  of  Colorado  Studies, 
V.  5,  no.  1,  p.  5-16.     Dec,  1907.) 

Photostat  in  the  Legislative  Reference    Department  of  the    Con- 
necticut State  Library'.     (In  Spec.  Libs.  4:  42-43,  Feb.,  1913.) 

From  the  Harlford  Daily  Times,  Feb.  8.  1913. 

Ray,  P.  Orman.  ,  r.  i-  •       tv-    ^' 

Introduction  to  Political  Parties  and  Practical  Politics,  N.  \. 
1913.     p.  446-48. 

Reinsch,  Paul  S. 

American  Legislatures  and  Legislative  Methods,  1907.     p.  295- 
98. 
Richberg,  Donald. 

Legislative  Reference  Bureaus  for  Political  Parties.     (Am.  Pol. 
Sci.  Assn.     Proceedings,  Feb.,  1914,  in  press.) 
Sanborn,  John  Bell. 

Some  Recent  Legislative  Tendencies.     {Col.  Law.  Rev.  S:  no.  5, 
My.,  1908. 
Sane  legislation.     {Pub.  Policy,  Dec.  16,  1905.) 
Schaffner,  Margaret. 

Wisconsin  legislative  reference  library-.     {Iowa  Journal  of  Hist, 
and  Politics  4:  475-79,  July,  1906. 
Sheldon,  Addison  E. 

Legislative    reference    dept.     {Nebraska   Library  Bui.   No.    3, 
Nov.  1906.) 
•  Sherwood,  Grace. 

List    of    Publications   of    Legislative    Reference    Departments. 
(In  Spec.  Libs.  3:  201-04.) 

Reprinted  with  additions,  infra  p.  379-87. 
Snodgrass,  Robert. 

Legislative  assistance  or,  Some  aspects  of  reform  in  legislation. 
(Penn.  Bar  Assoc.  Report,  1908.     p.  3-29.     Phil.,  1908.) 
The     Socialist     Partv     Information     Department     and     Research 
Bureau.     {Nat.  Mun.  Rev.  2:  500-01.) 

The  bureau  is  in  Chicago  under  the  direction  of  Mr.  Carl  D.  Thompson. 
Sterne,  Simon. 

The  prevention  of  defective  and  slip-shod  legislation      lAmer. 
Bar  Assn.  Report,     v.  7,  p.  275-301.) 
Stimson,  Frederic  J. 

The  legislative  reference  of  the  future.     (A.  L.  .\  Bui.  Brclton 
Woods  Conference  v.  3:  301-08,  Sept.,  1909.) 

.     Need  of  Parliamentary    Draftsmen.     (In   his    Popular  Law 

Making.     1910,  p.  361-63.) 


Appendix  393 

Tolman,  F.  L. 

Reference  problem  of  the  state  library.     (A.  L.  A.  Bui.  Sept., 

♦  VVallis,  Mary  S. 

The  Library'  side  of  the  Department  of  Legislative  Reference 
Baltimore.     {Spec.  Libs.  1:  73-75,  Dec,  1910.) 
Whitten,  Robt.  H. 

Comparative   legislation   in   legislative  reference   work.     (Nat 
Assoc,  of  State  Libraries.     Proceedings  June  30,  1906.     5  p.) 

.     Development    of   special    libraries.      (Lib.    J.      Dec      1909 

p.  546-47.) 

*  7—-     ^^^  library  of  the  N.  Y.  Public  Service  Commission.     (Spec. 
Libs.  v.  1:  18-20,  Mar.,  1910.) 

.     Special  libraries  {Lib  Journal,  v.  31:  12-14.     Jan.,  1906.) 

—.     Two    decades    of    Comparative    legislation.     {Law   Library 

Journal,   Oct., 1909.     6  p.) 
Why  Special  libraries?     {Pub.  Libs.  15:  238,  June,  1910.) 
Uisconsm  Legislative  Reference  Department.     (L.J.  30:  C242-46.) 
Wisconsm  Legislative  reference  work.     {Wis.  Lib.  Bui.  2:  53-6   July 

1906.) 
Woodruff,  Clinton  Rogers. 

Improvement  of  legislation  through  co-operation  and  trained 
^  experts.     {Ltvirig  Church,  Feb.  6,  1909,  5  p.) 

*— — •     Legislative  reference   work  and   its  opportunities.     {Pub. 
Lti.  Oct.,  1908.     V.  13:  300-303.) 

Same  in  Nat.  Assoc,  of  State  Libraries.     Proceedings.    1908.    v.  2:  278-83. 

QUALIFICATIONS  OF  THE  LIBRARIAN. 
Bostwick,  Andrew  Linn. 

Relation  between  the   Municipal  Library  and  the  Legislator. 
(In  Spec.  Libs.  4:  163-65,  Sept.-Oct.,  1913. 
Dudgeon,  M.  S. 

Qualifications  of  Legislative  and   Municipal   Reference  Libra- 
rians.    (In  Spec.  Libs.  2:  114-15,  Dec,  1911.) 
— — .     Scope  and  Purposes  of  the  Special  Library.    (In  Spec.  Libs.  3: 

129-32,  June,  1912:  especially  p.  131-32.) 
U.  S. — ^Library,  Senate  Coqimittee  on. 

Legislative  Drafting  Bureau  and  Reference  Division.     145  p. 
Wash.,  1913.     (62d  Cong.  3d  Sess.  Sen.  Doc.  1271.) 

See  especially  testimony  on   p.  107.    114-15.    122,  128,   by   Dr.  McCarthy, 
Speaker  Clark,  Mr.  Mann,  Mr.  Beaman  and  Mr.  McKirdy. 

LAWS. 

Alabama  General  Acts  1907,  p.  318. 

Illinois  Laws  1913,  p.'  391-92 

Indiana  Acts  1913,  p.  694-96 

Michigan  Public  Acts  1907,  p.  405-06 

Mebraska  Session  Laws  1911,  p.  310-13 

New  Hampshire  Laws  1913,  Chap.  206 


394 


Appendix 


LAWS  (continued). 
Laws  1907,  p.  382 

1913,  p.  8-10,  604,  639 

1913,  Chap.  149 

1909,  p.  208 

1911,  p.  76 

1913,  p. 250-51,769-770 

Chap.  38 

1907,  no.  1471 

1908,  no.  1554 
1913,  Chap.  935 
1907,  p.  395-96 

1909,  Chap.  70 
1912-13,  p.  14-16 
Sec.  373.  f. 
1913,  Chap.  772,  sec.  55 

and  Sec.  172-23. 
1913,  Chap.  760,  Sec.  5. 

LAWS  RELATING  TO  OTHER  OFFICIAL  BILL-DRAFTING 
AGENCIES. 


North  Dakota 
Ohio 
Oregon 
Pennsylvania 


Rhode  Island 


South  Dakota 
Te.\as 
Vermont 
Wisconsin 


Rev.  of  1909 
Public  Laws 

Acts  and  Resolves 
Sess.  Laws 
General  Laws 
Session  Laws 
Session  Laws 
Laws 


California 
Connecticut 


Massachusetts 
New  York 
South  Carolina 


Laws  1913,  Chap.  322 

Gen.  St.   Rev.  1902,    title  2,  Sec.    37, 

Rules  of  the  Sen.  and  House.  Parts  of 
Rules  X  and  XIII.  Register  and  Manual, 
1913,  p.  119-20. 

House  Journal  Jan.  2,  1913,  pp.  42-43 

Manual  1913,     "  Rules    of     the 

Senate;"  20,  21.  33 

Consolidated  Laws  1909  Legislative  Law 
V.  3,  p.  2116 

Assembly  Rules  No.  19 

Code  1912,v.l,p.31,§23,  §716. 

BILLS. 
National. 

H.  R.  31536 
H.  R.  4703 
H.  R.  12155 
H.  R.  1720 
H.  R.  18720 
S.  8335 
S.  8337 
H.  R.  3396 
S.  1240 
H.  Res.  35 
S.  Res.  45. 

In  62  Cong.  3d  Sess.  Sen.  Report  1271  other  bills  are  suggested 
on  p.  21,  23,  62. 


61st  Cong.  3d  Sess 
62nd     "      1st 


3d 


63d 


1st 


Appendix  395 


Stale  (Selected) 

A. 

B. 

970 

S. 

B. 

872 

S. 

B. 

951  (same  as  A. 

B.  970) 

s. 

B. 

1490 

s. 

B. 

252^ 

s. 

B. 

274 

H. 

B. 

28 

H. 

B. 

47 

A. 

B. 

37 

A. 

B. 

Int.  1936 

S. 

Int.  1452 

California,  1913 


Illinois,  1913 


New  York,  1913 


DOCUMENTS  AND   REPORTS. 
American  Bar  Association.  —  Legislation,  Committee  on  Improving 
Methods  of. 

Report.     (In  Amer.  Bar  Assn.  Reports.     1886.     p.   284-86.) 
*  American  Bar  Association.  —  Legislative  Drafting,  Special  Com- 
mittee on. 
Report,  49  p.     1913. 

Contains  as  Appendix  A,  "Summary  of  Existing  State  Laws  and  Rules  relat- 
ing to  Legislative  Drafting  and  Reference  Agencies,  together  with  an  analysis  of 
measures  designed  to  establish  similar  agencies  in  other  states  ana  in  Washington, 
by  H.  Goddard,  of  the  Legislative  Drafting  .-Association  of  New  York.  As  Appen- 
dix B,  "Report  to  the  Committee  on  existing  agencies  for  rendering  expert 
assistance  to  members  of  Legislatures,"  by  J.  David  Thompson.  An  exceed- 
ingly illuminating  document. 
Arizona  —  Governor. 

Message,  1913. 
Baltimore.  —  Legislative  Reference,  Dept.  of.    Annual  report,  1907-. 

Bait.  1908-. 
.     New  Department  of  Legislative  Reference,  Baltimore.     Re- 
marks at  a  round  table.     Feb.  26,  1907,  by  Theodore  Marburg 
and  others.     43  p.     1907. 
Bryce,  James. 

Statement  p.  7-22.     (In  Hearings  before  the  committee  on  the 
library.  House  of  Representatives,  on  various  bills  proposing  the 
establishment  of  a  congressional  reference  bureau.      Feb.  26  and 
27,   1912.     114  p.     Wash.   1912.) 
Connecticut  —  Governor  (Woodruff). 

Message,  Jan.,  1907.     p.  5-7. 
Georgia,  H.  C.  R.  18.     1913. 

(Authorizing  a  committee  to  investigate  and  report  upon  the 
subject  of  a  legislative  reference  bureau  for  Georgia.) 
Illinois  —  Governor  (Deneen). 

Message,  Jan.  4,  1911.     (p.  27  of  Sen.  Journal.) 
Massachusetts  —  State  Library. 

Annual  report,  1912,  p.  9. 
Minnesota  —  Governor. 
Message,  1913. 

^'  See  as  introduced  Jan.  29  and  as  amended  June  3,  1913. 


396  Appendix 

National   Association  of   State   Libraries  —  Legislative    Reference, 

Report.     Special  Committee  on.     (2  L.  L.  J.  80-81,  June,  1910.) 
Ohio  —  State  Library-. 

Need  of  a  legislative  reference  department  for  Ohio. 
Articles  bv  H.  W.  Crist,  C.  B.Galbrcath  and  J.  A.  Lapp,  with  biblio.    27  p. 
Springfield,  1910. 

Progressive  National  Committee. 

Legislative     Reference     Bureau.     (In    its     Progressive    Service 

Documents.     D.   1,  March,  1913,  p.  4-5,  10-12;  D.  6,  March,  31, 

1913,  first  quarterly  report  of  the  National  Progressive  Service, 

p.  19-22.) 
Statement  of  the  Purposes  and  Advantages  of  a  Legislative  and 

Municipal  Reference  Bureau  for  the  State  of  Illinois.    [4  p.,  1911.] 
Statement    of    the    Purposes    and    Advantages    of    a    Legislative 

and  Administrative  Reference  Bureau  for  the  State  of  Illinois. 

[4  p.,  1913.] 
U.  S.  —  Library,  House  Committee  on. 

Congressional    Reference    Bureau.     Hearing    on    various    bills 

proposing  the  establishment  of  a  Congressional  Reference  Bureau. 

Feb.  26  and  27,  1912.     114  p.     Wash.  1912. 
.     .     Legislative    Counselors.     (62d    Cong.    3d    Sess.    H. 

Rept.  1534.) 
.     .     Legislative  Reference  Bureau  in  Library  of  Congress. 

4  p.     1913.     (62d  Cong.  3d  Sess.  H.  Rept.  1533.) 
U.S.  —  Library,  Senate  Committee  on. 

Legislative  Reference  Bureau  of  the  Library  of  Congress,  7  p. 

1913.     (63d  Cong.  1st  Sess.  S.  Rpt.  73.) 
.     .     Legislative  Drafting  Bureau  and  Reference  Division. 

145  p.     Wash.  1913.     (62d  Cong.  3d  Sess.  Sen.  Rpt.  1271.) 

A  report  favoring  S.  8337  as  amended  and  containing  as  "Appendix  A"  62d 
Cong.  1st  Sess.  S.  Doc.  No.  7.  supra  and  as  "Appendix  B"  the  Hearings,  supra. 
U.  S.  —  Library  of  Congress. 

Legislative  reference  bureaus.  Letter  from  the  librarian  of 
Congress  transmitting  special  report  relative  to  legislative  reference 
bureaus.  Wash.  Govt.  Print,  off.  1911.  36  p.  (62d  Cong. 
1st  Sess.  Senate.  Doc.  7;  also  in  its  Annual  Report  for  1911,  p. 
183—237  ) 

.     — '-.     Report.     1912.     p.  108-09. 

.     .     1913.     Wash.  1913. 

"Appendix  IV:   Legislative  Reference  Bureau,  Bills  and  Reports  in  Con- 
gress."    (p.  247-6L) 
Washington  —  State  Library. 

Washington,    Legislative   reference  department.     9th  Biennial 
report.     1906.     p.  29-31. 
Wisconsin  —  Free  Library  Commission. 

Legislative  Reference  Department.  30  p.  Jan.,  1908.  {Cir- 
cular of  information,  No.  6.) 

Ed.  2,  30  p.     1911. 

Ed.  1  was  reprinted  in  Paul  S.  Reinsch's  i?efldj»£5  onAmer.  State  Govt.     1911. 
p.  63-74. 
Wisconsin  —  Governor  (McGovern). 
Message  Jan.  12,  1911,  p.  29-30. 


Appendix  397 

A  List  of  References  on  Bill-drafting,  Statutory  Con- 
struction AND  THE  Interpretation  of  Statutes. 

Based,  with  additions,  on  "A  Select  List  of  Books  on  Statute  Law"  in 
Chester  Lloyd  Jones's  Statute  Law  Making  (Pref.  p.  Lx-x)  and  James  McKirdy's 
"Works  on  Bill  Drafting,  Statutory  Construction  and  Kindred  Subjects,"  in 
his  Bill  Drafting,  a  paper  read  at  the  Annual  Meeting  of  the  National  Associa- 
tion of  State  Libraries,  Ottawa,  Canada,  June,  1912,  published  at  Harrisburg, 
1912.  The  Bibliography  attached  to  this  pamphlet  also  appeared  in  Si>ec. 
Libs.  3:  19-20.     Feb.,  1912.28 

American  Bar  Association  —  Legislation,  Committee  on  Improving 
Methods  of. 

Report.     (In  Amer.   Bar  Assn.   Reports,    1SS6.      p.    284-86.) 
Judge  Baldwin,  Chairman. 

American    Bar    Association  —  Legislative    Drafting,    Special    com- 
mittee on. 

Report.     49  p.     1913. 
Anson,  Sir  W.  R. 

Law  and  Custom  of  the  Constitution.     2  vols.     Oxford.     1896. 
Beal,  Edward. 

Cardinal  Rules  of  Legal  Interpretation.     London.     1908. 
Bedwell,  C.  E.  A.,  Ed. 

The  Legislation  of  the  Empire.     4  vols.     London.     1909. 
Bentham,  Jeremy. 

A  General  View  of  a  Complete  Code  of  Laws.  Nomography;  or, 
the  Art  of  Inditing  Laws. 

.     Introduction  to   the    Principles  of  Morals  and  Legislation. 

London.     1823. 
— ; — .     Theory  of  Legislation.     2  vols.     Boston,  1840. 
Bill-drafting.     (Exhibit  10  of  Letter  from  the  Librarian  of  Congress 
Transmitting    Special    Report    Relative    to    Legislative    Reference 
Bureaus.     62d  Cong.  1st  Sess.     S.  Doc.  No.  7.) 

This  Doc.  No.  7  was  also  published  in  the  Report  of  the  Librarian  of  Con- 
gress, 1911,  p.  183-237,  and  as  Appendix  A  to  62d  Cong.  3d  Sess.  S.  Report 

Bill-drafting.     (See    especially    the    testimony    of    C.     B.     Lester, 
Charles   McCarthy,   James   McKirdy   and   Ernest   Bruncken   in 
House  Hearings.     See  Bryce,  post.) 
Binney,  Charles  Chauncey. 

Restrictions  upon  Local  and  Special  Legislation  in  State  Con- 
stitutions.    Philadelphia.     1894. 
Bishop,  Joel  Prentiss. 

Commentaries  on  the  Written  Laws  and  their  Interpretation. 
Boston.     1882. 
Black,  Henry  Campbell. 

Constitutional  Law.     St.  Paul,  Minn.     1910. 

.     Handbook  on  the  Construction  and  Interpretation  of  the 

Laws.     St.  Paul,  Minn.     1911. 

=^  Certain   titles  in   the    preceding   bibliography   are  appropriate 
to  this  list  also. 


398  Appendix 

Brown,  W.  Jethro. 

The   Underlying   Principles  of  Modern  Legislation.     London. 
1912. 
Bruncken,  Ernest. 

Defective   Methods  of   Legislation.     {Amer.    Pol.  Sci.    Rev.   4: 
167-79,  Mv.  '09.) 
.     Hints  on   Drawing  Legislative    Bills.     12  p.     1908.     (Cali- 
fornia State  Lihrary,  Legislative  Reference  Bulletin  No.  1.) 
Brvce,  James. 

Testimony.  (In  Hearings  of  the  Committee  on  the  Library, 
House  of  Representatives,  Feb.  26,  1912.) 

Hearings  were  published  separately  and  also  as  "Appendix  B"  to  62d  Cong. 
3d  Sess.     S.  Report  1271. 

Buckalew,  C.  R. 

An  examination  of  the  Constitution  of  Pennsylvania.     1883. 

Coode,  George. 

Legislative  E.\pression,  or  the  Language  of  the  Written  Law. 
(In  Great  Britain  —  Poor  Law  Commissioners.  Report  on  Local 
Taxation.     1843). 

First  published  as  an  introduction  to  the  appendix  of  this  report.  Reprinted 
in  Lau'  Library  X.  S.  v.  44,  1848. 

.     Ed.  2.     1852. 

Cooley,  Thomas  M. 

A  Treatise  on  the  Constitutional  Limitations.     Boston.     1903. 
Craies,  William  Feilden. 

A  Treatise  on  Statute  Law.     London,  1906. 
Dealey,  James  Quayle. 

Our  State  Constitutions.     Philadelphia.     1907. 
Dicey,  A.  V. 

Conflict  of  Laws.     London.     1908. 
Dickinson,  Reginald. 

Summary  of  the  Constitution  and  Procedure  of  Foreign  Parlia- 
ments.    London.     1890. 
Dillon,  John  F. 

Commentaries  on  the  Law  of  Municipal  Corporations.  5v. 
Bost.,  1911. 

Especially  Chap.  5  (v.  2) :  Ordinances  and  By-Laws. 

.     Statute  and  Constitutions.     Albany.     1875. 

Dwarris,  Fortunatus. 

Treatise  on  Statutes.     Albany.     1871. 

Endlich,  G.  A. 

Commentaries  on  the  Interpretation  of  Statutes.     Jersey  City. 
18S8. 
Flack,  Horace  E. 

Scientific  Assistance  in  Law  Making.  (In  Amer.  Pol.  Sci.  Assn. 
Proceedings,  F"eb.,  1914,  in  press.) 

Followed  by  discussions  from  Dr.  McCarthy,  Mr.  Lapp,  and  Professor 
Merriam. 


Appendix  399 

Freund,  Ernst. 

Das  Offentliche  Recht  der  Vereinigten  Staaten  von  Amerika. 
387  p.     1911.     {Das  Offentliche  Recht  der  Gegenwart.     v.  12.) 

.     Police  Powers.     Chicago.     1904. 

.     The  Problem  of  Intelligent   Legislation.     (Amer.   Pol.    Sci. 

Assn.  Proceedings  1907;  4:  69-79.) 
Function    of    the    Legislative   Expert.     (Editorial)   Calif.    L.    Rev. 

255-56,  Mar.,  1913. 
Gael,  Samuel  Higgs. 

Legal  and   General   Composition.     London.     1840. 
Gilbert,  Frank  B. 

Statutes;      Review    of    Legislation.     Albany.     1903.     (N.    Y. 
State  Library  Legislation  Bulletin  22b.) 
Gilfry,  Henry  H. 

Precedents.    Decisions   on    Points   of  Order   with   Phraseology 
in  the  United  States  Senate.     Washington.     1909. 
Goodnow,  F.  J. 

Comparative  Administrative  Law.     2  v.     N.  Y.     1893. 
Great  Britain  —  House  of  Commons. 

Manual  of  Procedure  in  the  Public  Business  of  the  House  of 
Commons.     3d  ed.     London.     1912. 
Griggs,  John  W. 

Lawmaking.     (Am.  Bar  Assn.  Reports.     1897.) 
Hardcastle,  H. 

The  Construction  and  Effect  of  Statute  Law.     Ed.  3.     London. 
1901. 
Hawkins,  F.  Vaughn. 

(Remarks)  in  Thaver's  Preliminary  Treatise  on  Evidence.     Apx. 
C.  p.  585. 
Hinds,  Asher  C. 

Digest  and  Manual  of  the  Rules  and  Practice  of  the  House  of 
Representatives  of  the  United  States.     Washington.     1908. 

.     Hinds'  Precedents  of   the  House  of  Representatives  of  the 

United  States.     8  v.     Washington.     1907. 
Hutchins,  F.  E. 

Construction  —  Some   of   its   Uses   and   Abuses.     (Ohio   State 
Bar  Assn.  Reports,  1897.) 
Ilbert,  Sir  Courtenay. 

Legislative  Methods  and  Forms.     Oxford.     1901. 

.     Methods  of  Legislation.     London.     1912. 

Jenkyn,  Sir  Henry. 

British  Rule  and  Jurisdiction  beyond  the  Seas.     Oxford.     1902. 
See  Preface. 

Jones,  Chester  Lloyd. 

Statute  Law  Making  in  the  United  States.     Boston.     1912. 

Reviewed  by  Professor  J.  \V.  Garner  in  S  III.  Law.  Rev.  74-76,  May,  1913, 
and  by  Thomas  J.  Parkinson  in  13  Col.  Law  Rev.  562-63. 

The  Use  of  Expert  Aid  in  the  Betterment  of  American  Statute 
Law.     (Amer.  Pol.  Sci.  Assn.  Proceedings,  Feb.,  1914,  in  press.) 


400  Appendix 

Lapp,  John  A.  ^  '      .,        .      . 

Hints  on  Bill  Drafting.     9  p.     1910.     (Ind.  St.  Liby.  Legis. 
Ref.  Dept.  Bulletin  Xo.  4.) 
Lieber,  Francis.  .  ,    .  ,  ^ 

Legal  and  Political  Hermeneutics;  or,  Principles  of  Interpreta- 
tion and  Construction  in  Law  and  Politics.     St.  Louis.     1880. 
McCarthy,  Charles.  r.  ,     c-  •     a 

Remedies   for   Legislative    Conditions.     (Am.    Pol.    Sci.    Assn. 
Proceedings,     v.  4: 69-89-102).     1907. 

.     The  Wisconsin  Idea.     New  York,  1912.     Especially  p.  194- 

232. 
McConachie,  Lauros  G. 

Congressional  Committees.     X.  V.     1898. 
McKirdv,  James. 

Bill' Drafting.     21  p.     Harrisburg.     1912. 
McQuillin,  Eugene. 

A  Treatise  on  the  Law  of  Municipal  Corporations.    6  v.    Chicago 
1912. 
Mahi,  Robert  von. 

Die  Abfassung  der    Rechtsgesetze  in  Staatrecht,  \olkerrecht, 
und  Politik.     2  v.     Tubingen,  1862. 

See  II:  375-613.     An  elaborate  discussion  of  the  best  methods  to  be  pur- 
sued in  preparing  measures  destined  to  become  laws  in  Germany,     (of.  Freund, 
supra,  p.  71.) 
Making    and     Revision    of    Law.       (In    Amer.     Pol.    Sci.     Assn. 
Proceedings 4:  69-140.)  1907. 

Papers  by  Ernest  Freund,  Charles  McCarthy,  C.  B.  Lester.  M.  S.  Dudgeon, 
J.  Jenks,  and  others. 
Maxwell,  Peter  Benson. 

Interpretation  of  Statutes.     4th  ed.     London.     1905. 
Mill,  John  Stuart. 

Representative  Government.     People's  ed.     1876.     p.  39. 
Monnett,  F.  S. 

Statuton.'  Construction.     (Ohio  State  Bar  Assn.  Reports,  1895.) 
Munson,  F.  G. 

The  Drafting  of  Federal  Statute  Law.     {American  Law  Review 
43:  121-28,  Jan.-Feb.,  1909.) 
Oliver,  A.  L. 

Statutory  Revision.     (Mo.  Bar  Assn.  Reports,  1908.) 
Ordronaux,  John. 

Constitutional  Legislation.     Phil.     1891. 
Parkinson,  Thomas  I. 

Legislative  Drafting.    N.  Y.    1912.     {Publications  of  the  Acad- 
emy of  Political  Science.     Ill:  142-54.) 
Patton,  John  W. 

Festina  Lente.     {Penn.  Law  Rev.  59:  203-14.) 
Prentice,  \V.  P. 

Police  Powers.     N.  Y.     1894. 
Reinsch,  Paul  Samuel. 

American  Legislatures  and  Legislative  Methods.     N.  Y.     1907. 


Appendix  401 

Russell,  Alfred. 

Police  Powers.     Chicago.     1900. 
Sanderson,  J.  F. 

Validity  of  Statutes  in  Pennsylvania.     Phil.     1898. 
Sedgwick,  Theodore. 

Rules   which   govern   the   Interpretation  and   Construction  of 
Statutory  and  Constitutional  Law.     Ed.  2.     N.  Y.     1874. 
Smith,  E.  Fitch. 

Commentaries  on  Statute  and  Constitutional  Law  and  Statu- 
tory Construction.     Albany.     1848. 
Stimson,  Frederic  Jessup. 

American  Statute  Law.     2  v.     1886. 

.     Federal  and  State  Constitutions.     Boston.     1908. 

.     Popular  Law  Making.     N.  Y.     1910. 

Story,  Joseph. 

Conflict  of  Laws.     Boston.     1883. 
Sutherland,  G. 

Necessity  for  Greater  Care  in   Making  Laws.     Ohio  Law  Bui. 
54:  173-76,  May  10,  1909;   also  in  Chi.  L.  N.  41:  378,  June  19, 
1909. 
Sutherland,  J.  G. 

Statutes  and  Statutory  Construction.     2  v.     Chicago.     1904. 

Symonds,  Arthur. 

The  Mechanics  of  Law  Making.     London.     1835. 

Thring,  Lord  Henry. 

Practical  Legislation.     Boston,  1902. 

U.  S.  —  Senate. 

Senate  Manual  containing  the  Standing  Rules  and  Orders  of 
the  United  States  Senate.     Washington.     1909. 
Wade,  William  P. 

Retroactive  Laws.     St.  Louis.     1880. 

Wharton,  Francis. 

Conflict  of  Laws.     Rochester,  1905. 

White,  Thomas  Raeburn. 

Commentaries   on   the   Constitution    of    Pennsylvania.      Phil. 
1907. 
Wilberforce,  Edward. 

Statute  Law.     London.     1881. 
Willard,  Ashton  R. 

A  Legislative  Handbook.     Boston.     1890. 
Wisconsin  Free  Library  Commission. 

Legislative  Reference     Department.     30     p.     1911.     (Circular 
of  Information  No.  6.     Ed.  2.) 
Especially  p.  10-21. 
Wyman,  Bruce. 

Principles  of  the  Administrative  Law  Governing  the  Relations 
of  Public  Officers.     St.  Paul.     1903. 


402  Appendix 

6.    SUGGESTED  CLASS  PROBLEMS   ON  LEGIS- 
LATIVE REEERENCE  WORK. 

University  of  Illinois  Library  School. 
Legislative  Referenxe  Work:     Problem  L 

1.  Describe  the  New  York  State  Library's  Year  Book  of  Legislation, 

mentioning  particularly  its  scope,  and  parts,  and  explaining 
its  use  and  system  of  classification. 

2.  In  what  states  is  the  weekly  payment  of  wages  compulsory? 

Problem  H. 

1.     What  would  you  place  at  the  disposal  of  a  legislator  asking  for 
material  that  would  aid  him  in  drawing  up  a  state  law  on  any 
one  of  the  following  topics.     Name  definite  titles  and  indicate 
in  addition  other  types  of  material  you  would  find. 
(Choose  one  of  the  following  only.) 

a.  Old  age  pensions. 

b.  Minimum  wage  law  for  women  workers. 

c.  To  abolish  the  public  drinking  cup. 

d.  Employers'  liability. 

e.  Colonies  for  epileptics. 

f.  To  restrict  immigration. 

Problem   IH. 

1.  Find  a  compilation  of  laws  relating  to  industrial  education  in  this 

country. 

2.  What  section  of  the  constitution  of  Delaware,  1897,  relates  to  the 

bribery  of  voters. 

3.  How  much  monev  was  appropriated  for  the  care  of  the  University 

of  Minnesota  Campus,  August  1,  1910-July  31.  1911?^ 

4.  Are    street  cars  included  in  the  term  "motor  vehicles"  as  the 

term  is  used  in  the  law  of  Maryland  which  licenses  motor 
vehicles? 

5.  Find  the  title  of  a  treatise  on  the  French  law  of  responsibility 

for  automobile  accidents. 

Optional  Question. 

6.  Prepare  a  short  list  of  select  references  to  material  >ou  would 

make  available  to  a  California  legislator  wishing  exact  knowl- 
edge in  regard  to  California's  right  to  pass  a  law  preventing  the 
Japanese  from  owning  or  leasing  land  in  California. 


Appendix  403 

III.     MUNICIPAL  REFERENCE. 


1.    Ordinances    and    Laws    Relating    to    Municipal 
Reference  Work. 

BALTIMORE. 

Laws  of  Maryland,  1906,  Chapter  565. 

Entitled  "An  Act  to  add  three  additional  sections  to  Article  4  of  the 
Code  of  Public  Local  Laws  of  Maryland,  entitled  'City  of  Balti- 
more,' sub-title  'Charter,'  to  follow  immediately  after  Section  208, 
and  to  be  known  as  Sections  208A,  208B  and  208C,  creating  a  new 
Department,  to  be  known  as  the  Department  of  Legislative  Refer- 


Sec.  L  Be  it  enacted  by  the  General  Assembly  of  Maryland,  That 
three  additional  sections  be  added  to  Article  4  of  the  Code  of  Public 
Laws  of  Maryland,  entitled  "City  of  Baltimore,"  sub-title  "Charter," 
to  follow  immediately  after  Section  208,  and  to  be  known  as  Sections 
208A,  20SB  and  208C,  creating  a  new  Department,  to  be  known  as  the 
Department  of  Legislative  Reference,  and  to  read  as  follows: 

Sec.  208A.  There  shall  be  a  Department  of  Legislative  Reference 
of  the  Mayor  and  City  Council  of  Baltimore.  The  head  of  said 
Department  shall  consist  of  a  Board  composed  of  the  Mayor  of 
Baltimore,  the  City  Solicitor,  the  President  of  the  Johns  Hopkins 
University,  the  President  of  the  Municipal  Art  Society,  and  the  Presi- 
dent of  the  Merchants  and  Manufacturers'  Association  of  Balti- 
more City;  and  the  members  of  said  Board  shall  serve  without  pay. 
The  said  Board  shall  employ  a  competent  statistician  as  its  executive 
officer,  to  organize  and  conduct  the  said  Department;  and  the  said 
executive  ofificer  shall  hold  office  from  the  first  day  of  January,  1907, 
during  good  behavior,  and  shall  be  subject  to  removal  by  the  said 
Board,  or  a  majority  thereof,  for  incompetence  or  neglect  of  duty. 

Sec.  208B.  It  shall  be  the  duty  of  said  executive  ofificer  to  in- 
vestigate and  report  upon  the  laws  of  this  and  other  States  and  cities 
relating  to  any  subject  upon  which  he  may  be  requested  to  so  report 
by  the  Mayor  of  Baltimore,  any  committee  of  the  City  Council 
or  the  head  of  any  city  department;  to  accumulate  all  data  obtain- 
able in  relation  to  the  practical  operation  and  effect  of  such  laws; 
to  investigate  and  collect  all  available  information  relating  to  any 
matter  which  is  the  subject  of  proposed  legislation  by  the  General 
Assembly  of  Maryland  or  the  City  Council  of  Baltimore;  to  examine 
acts,  ordinances  and  records  of  any  State  or  city,  and  report  the 
result  thereof  to  the  Mayor  of  Baltimore,  any  committee  of  the  City 
Council,  or  the  head  of  any  city  department  requesting  the  same; 
to  prepare  or  advise  in  the  preparation  of  any  bill,  ordinance  or 
resolution  when  requested  so  to  do  by  any  member  of  the  City 
Council;  to  preserve  and  collate  all  information  obtained,  care- 
fully indexed  and  arranged  so  as  to  be  at  all  times  easily  accessible 


404  Appendix 

to  city  officials  and  open  to  the  inspection  of  the  general  public;  to 
perform  such  other  duties  as  the  said  Board  may  prescribe;  and  to 
make  a  full  and  comolete  report  thereof  on  or  before  the  first  day 
of  P>bruar>-  of  each  and  ever>-  year  to  cover  the  work  for  the  previous 
fiscal  year  ending  December  thirty-first.  .      ^   .. 

Sec.  20SC.  The  Board  of  Estimates  shall  provide,  m  the  Ordi- 
nance of  Estimates  for  the  year  1907  and  annually  thereafter,  for  the 
payment  of  the  salary  of  said  executive  officer,  which  shall  not  be  less 
than  S2,000  per  annum,  and  also  a  sum  sufficient  to  pay  all  other 
expenses  of  the  said  Department  of  Legislative  Reference. 

CHICAGO. 

{Chicago  Code,  1911,  p.  761.29) 

CH.A.PTER  LXX. 
BURE.\U  OF  ST.\TISTICS. 

2380  BURE.'\U  EST.\blished]  There  is  hereby  established  a 
bureau  in  the  executive  department,  to  be  known  as  the  bureau 
of  statistics. 

23S1  City  St.\TISTICIAN-OFFICE  created.]  There  is  hereby 
created  the  office  of  city  statistician.  He  shall  be  appointed  accord- 
ing to  law,  shall  be  the  head  of  the  bureau  of  statistics,  and  shall 
act  as  librarian  of  the  municipal  library.  There  shall  be  in  said 
bureau  an  assistant  city  statistician  and  such  other  employes  as 
the  city  council  may  by  ordinance  provide. 

2382  Duties.]  It  shall  be  the  duty  of  the  city  statistician  to 
collect,  compile  and  publish,  whenever  directed  so  to  do  by  the 
citv  council  or  the  mayor,  statistics  and  information  relating  to  the 
city  of  Chicago,  and  statistics  relating  to  the  government  and 
operation  of  other  municipalities.  He  shall  keep  on  file  all  reports, 
printed  or  published  by  the  city,  or  any  of  its  departments,  relating 
to  the  government,  management  or  control  of  said  city,  or  any  of 
its  departments,  and  shall  perform  such  other  duties  as  may  from  time 
to  time  be  required  of  him  by  the  mayor. 

An  Ordinance.^" 

CRE.\TING  the  BURE.A.U  OF  INFORMATION  AND  PUBLICITY. 
Be  it  ordained  by  the  City  Council  of  the  City  of  Chicago. 

Sec.  1.  There  is  hereby  created  a  bureau  in  the  executive  depart- 
ment of  the  municipal  government  of  the  City  of  Chicago  which 
shall  be  known  as  the  Bureau  of  Information  and  Publicity  and 
shall  embrace  a  Commissioner  of  Information  and  Publicity,  a 
Chief  Statistician  and  such  investigators,  assistants  and  employes 
as  may  be  provided  by  ordinance  of  the  City  Council. 

Sec.  2.  There  is  hereby  created  the  office  of  Commissioner  of 
Information  and  Publicity.  He  shall  be  appointed  by  the  Mayor 
in  the  manner  provided  by  law  and  shall  have  charge  of  the  general 

"  Repealed  by  the  next  ordinance. 

^  This  ordinance  had  not  been  put  into  operation  nor  the  bureau 
organized.     (Dec.  1913.) 


Appendix  405 

management  and  control  of  all  matters  and  things  pertaining  to  said 
bureau. 

Sec.  3.  There  is  hereby  created  the  office  of  Chief  Statistician. 
He  shall  be  appointed  by  the  Mayor  in  the  manner  provided  by  law 
and  shall  act  as  municipal  librarian  and  shall  perform  such  other  duties 
relating  to  the  conduct  of  said  bureau  as  may  be  required  of  him  by 
said  Commissioner. 

Sec.  4.  Said  Commissioner  and  said  Statistician  shall,  before  enter- 
ing upon  the  duties  of  their  respective  offices,  each  execute  a  bond 
to  the  City  of  Chicago  in  the  sum  of  five  thousand  ($5,000.00)  dollars, 
with  sureties  to  be  approved  by  the  City  Council,  conditioned  for 
the  faithful  performance  of  the  duties  of  their  respective  offices. 

Sec.  5.  The  salary  of  said  Commissioner  of  Information  and 
Publicity  is  hereby  fixed  at  the  sum  of  five  thousand  ($5,000.00) 
dollars  per  annum. 

The  salary  of  the  said  Chief  Statistician  is  hereby  fixed  at  the  sum 
of  three  thousand  ($3,000.00)  dollars  per  annum. 

Sec.  6.  It  shall  be  the  duty  of  said  Commissioner  to  cause  to 
be  collected  and  compiled  under  his  supervision,  information  relating 
to  all  branches  of  the  municipal  government  and,  in  so  far  as  it  may 
be  of  material  assistance  in  the  conduct  of  the  municipal  govern- 
ment of  the  city,  he  shall  collect  and  compile  or  cause  to  be  col- 
lected and  compiled,  information  relating  to  the  conditions  and 
activities  of  other  municipalities  or  governments. 

Sec.  7.  It  shall  be  the  duty  of  said  Commissioner  to  keep  on 
file  all  reports  printed  or  published  by  the  City  of  Chicago,  or  any 
of  its  departments  or  bureaus;  and  also  to  collect  and  compile  or 
cause  to  be  collected  or  compiled,  statistics  and  information  con- 
cerning public  service  corporations  operating  under  grants  from 
the  City  of  Chicago  or  other  municipalities,  including  the  ordin- 
ances, laws  or  statutes  under  which  such  public  service  corpora- 
tions operate;  and  also  to  report  upon  request  of  the  Mayor  or  the 
City  Council,  or  any  committee  thereof,  upon  the  laws  of  any  other 
city  or  municipal  corporation,  and  to  accumulate  all  public  data 
possible  in  relation  to  the  practical  operation  and  effect  of  any 
such  laws;  and  also  to  investigate  and  collect  all  available  informa- 
tion and  data  regarding  any  matter  which  is  the  subject  of  proposed 
litigation  by  the  City  of  Chicago,  and  to  properly  file,  index  and 
preserve  all  information  and  data  collected  and  obtained  by  him. 

Sec.  8.  All  books,  papers,  documents  and  records  of  any  depart- 
ment or  bureau  of  the  municipal  government  of  the  City  of  Chicago 
shall  be  open  to  the  inspection  of  said  Commissioner. 

Sec.  9.  Said  bureau  shall  be  open  to  the  public  and  the  public 
shall,  subject  to  such  reasonable  rules  and  regulations  as  may  be 
prescribed  by  said  Commissioner,  have  access  to  and  may  consult 
all  files  and  documents  of  said  bureau. 

Sec.  10.  That  Sections  2380,  2381  and  2382  of  the  Chicago  Code 
of  1911  be  and  the  same  hereby  are  repealed.'^ 

"  See  preceding  ordinance  for  text  of  sections  repealed. 


406  Appendix 

Sec.  11.  This  ordinance  shall  be  in  full  force  and  effect  from 
and  after  its  passage.     Passed  Jan.  22,  1912. 

[The  same  committee,  to  whom  had  been  referred  (March  24, 
1913).  an  order  to  place  the  Municipal  Reference  Library  in  charge 
of  the  Chicago  Public  Librar>-,  submitted  a  report  recommending 
the  passage  of  the  order.  Unanimous  consent  was  given  for  the 
consideration  of  the  said  report.  Aid.  Richert  moved  to  concur  in 
the  report,  and  to  pass  the  said  order.  The  motion  prevailed  and  the 
said  order  was  passed.     The  following  is  the  said  order  as  passed:] 

Where.aS,  An  ordinance  was  passed  by  the  City  Council,  January 
15,  1912,  creating  a  Bureau  of  Information  and  Publicity,  whose 
functions  were  to  absorb  those  of  the  Bureau  of  Statistics  and  Munici- 
pal Reference  Library,  and 

Whereas,  The  Budget  of  1913  does  not  contain  an  appro- 
priation for  such  Bureau  of  Information  and  Publicity,  which  fact 
renders  said  Bureau  inopjerative  for  the  present  and  the  Municipal 
Reference  Library  has  been  continued  as  before  notwithstanding  the 
repeal  of  the  ordinance  placing  it  in  charge  of  the  Bureau  of  Statistics, 
and 

\\'here.a.s.  The  Chicago  Public  Library  has  recently  organized 
and  installed  a  Civics  Room  which  in  many  respects  parallels 
the  Municipal  Reference  Librar>%  and 

\Vhere.a.S,  a  merging  of  the  Bureau  of  Statistics  and  Municipal 
Reference  Library  with  the  Civics  Department  of  the  Public  Library 
would  save  the  City  a  considerable  sum  by  preventing  duplication 
of  effort  and  expenditure  and  at  the  same  time  strengthen  the  re- 
sources of  the  Municipal  Reference  Library  and  add  to  the  efficiency 
of  this  feature  of  the  Chicago  Public  Librar>-'s  work,  and 

Whereas,  By  such  amalgamation  of  forces  the  Municipal  docu- 
ments obtained  from  other  cities  of  the  United  States  and  of  Europe 
would  be  unified  instead  of  being  scattered  through  the  various 
libraries,  therefore, 

//  is  hereby  Ordered,  That  from  and  after  March  26,  1913,  the  Mu- 
nicipal Reference  Library  in  the  City  Hall  shall  be  placed  in  the  charge 
of  the  Chicago  Public  Library  with  full  control  as  to  the  organization 
of  its  materials  and  the  conduct  of  its  work,  provided,  however, 
that  the  said  Municipal  Reference  Librarv'  shall  be  maintained  as 
heretofore  in  the  room  now  provided,  with  such  interchange  of 
printed  materials  with  the  main  collection  of  the  Chicago  Public 
Library  as  will  best  serve  to  promote  the  interests  thereof  and  of  the 
Civics  Room  of  the  Chicago  Public  Library, 

And  be  it  further  Ordered,  That  the  officials  in  the  Municipal 
Reference  Library'  shall  render  to  the  City  Statistician  such  assistance 
in  the  prosecution  of  his  work  as  shall  be  found  possible  and  reason- 
able, including  such  service  of  the  stenographer  as  may  be  required 
by  the  statistician, 

A  nd  be  it  further  Ordered,  That  on  and  after  said  date  above  men- 
tioned the  said  statistician  shall  not  act  as  librarian  of  the  said 


Appendix  407 

Municipal  Reference  Library,  but  shall  continue  to  act  as  City 
Statistician  and  shall  maintain  his  office  and  headquarters  as  at  the 
present  time  located  in  the  City  Hall. 

[The  same  committee,  to  whom  had  been  referred  (March  24, 
1913),  an  order  directing  heads  of  departments  to  set  aside  copies 
of  reports  and  documents  published  for  use  of  the  Municipal  Refer- 
ence Library,  submitted  a  report  recommending  the  passage  of  the 
order.  Unanimous  consent  was  given  for  the  consideration  of  the 
said  report.  Aid.  Richert  moved  to  concur  in  the  report,  and  to 
pass  the  said  order.  The  motion  prevailed  and  the  said  order  was 
passed,  by  yeas  and  nays.]     The  following  is  the  said  order  as  passed : 

Ordered,  That  all  heads  of  departments  issuing  departmental 
reports  or  other  documents  from  time  to  time  be  and  they  are  hereby 
directed  to  set  aside  for  the  use  of  the  Municipal  Reference  Library 
and  the  said  Public  Library,  100  copies  of  each  of  said  reports  and 
documents  as  may  be  found  useful  in  procuring,  by  exchange,  docu- 
ments published  by  cities  elsewhere  in  the  United  States  and  other 
countries,  such  reports  and  documents  to  be  used  by  the  said  Muni- 
cipal Reference  Library  and  the  Chicago  Public  Library  in  making 
such  exchanges  with  other  municipalities. 

Ordered  March  31,  1913. 

Bureau  of  Statistics  and  Municipal  Library.^^ 
Salaries  and  Wages  — 

City  Statistician    $3,000.00 

Assistant  City  Statistician 1,320.00 

Junior  Stenographer   960.00 

$5,280.00 

Furniture,  fittings  and  library    40.00 

Printing,  stationery  and  office  supplies   .  .  .  912.00 

Services,  benefits,  claims  and  refunds    ....  10.00 

Total  $6,242.00 


CINCINNATI. 

An  Ordinance  No.  631-1912. 

Authorizing  the  use  by  University  of  Cincinnati  of  portion  of  City 
Hall  for  Municipal  Reference  Bureau  and  prescribing  conditions 
of  such  use. 

Be  it  Ordained  by  the  Council  of  the  City  of  Cincinnati, 
State  of  Ohio: 

32  This  sum  appropriated  in  1913  was  transferred  to  the  Public 
Library,  with  the  exception  of  the  salary  of  the  City  Statistician,  for 
the  use  of  the  Municipal  Reference  Library  according  to  the  foregoing 
ordinance. 


408  Appendix 

Sec.  1.  That  the  University  of  Cincinnati  is  hereby  granted 
permission  to  occupy  and  use,  for  the  establishment  and  main- 
tenance of  a  Municipal  Reference  Bureau,  such  space  or  quarters 
in  the  Cit\-  Hall  as  may  be  assigned  for  said  purposes  by  the  Director 
of  Public  Service;  and  said  Director  is  hereby  requested  to  provide 
suitable  quarters  or  space,  for  said  purpose,  adjacent  to  or  in  the 
neighborhood  of  the  Council  Chamber:  such  use  to  be  upon  the 
following  terms  and  conditions: 

a.  Said  bureau  to  be  for  the  use  and  information  of  the  City 
Council,  the  several  city  officers  and  departments  and  all  such 
citizens  of  the  city  who  may  desire  to  consult  same. 

b.  Said  bureau  to  be  under  the  direction,  supervision  and  charge 
of  a  Director  of  Municipal  Reference  Bureau,  who  shall  be  elected 
by  the  Board  of  Directors  of  the  University  of  Cincinnati  upon  the 
nomination  of  the  President  of  the  University  and  confirmed  by 
this  Council,  shall  be  an  expert  in  political  science,  political  economy 
and  public  law,  shall  hold  ofifice  during  good  behavwr  and  shall  be 
subject  to  removal  only  in  accordance  with  the  rules  governing 
the  appointment  and  removal  of  members  of  the  faculty  of  the 
University  of  Cincinnati. 

c.  It  shall  be  the  duty  of  said  Director  to  collect  and  compare 
the  ordinances  of  this  and  other  cities  and  the  laws  of  this  and  other 
states,  and  to  report  upon  the  laws  and  ordinances  of  other  states 
and  cities,  as  well  as  those  of  Cincinnati  and  the  State  of  Ohio, 
pertaining  to  any  subject  upon  which  he  may  be  requested  to  report 
by  his  Mayor,  any  committee  or  member  of  the  City  Council,  any 
city  officer  or  the  head  of  any  city  department;  to  collect  all  available 
information  relating  to  any  matter  which  shall  be  the  subject  of 
proposed  legislation  by  the  City  Council;  to  prepare  or  advise  in 
the  preparation  of  any  ordinance  or  resolution  when  requested 
to  do  so  by  the  City  Solicitor;  to  collect  such  information  as  may 
be  useful  to  the  City  of  Cincinnati  in  the  preparation  of  state  legis- 
lation and  to  advise  and  assist  in  the  preparation  of  measures  for 
introduction  in  the  General  Assembly  of  the  State  of  Ohio,  when 
requested  to  do  so  by  the  Mayor,  City  Solicitor  or  any  committee 
of  the  City  Council;  to  preserve  and  collect  all  information  obtained 
and  carefully  index  and  arrange  the  same,  so  that  it  may  be  at  all 
times  easily  accessible  to  the  members  of  the  City  Council,  other 
city  officials  ard  to  the  general  public  for  reference  purposes;  to 
secure  such  books,  pamphlets,  periodicals,  documents  and  other 
literature  from  the  University  Library,  the  Public  Library  of  Cin- 
cinnati and  other  libraries  and  sources  as  may  have  material  of  use 
to  the  City  Council  or  other  city  officials  or  as  may  have  bearing 
upon  any  question  or  questions  under  discussion  or  consideration 
by  the  public  officials  of  the  City  of  Cincinnati  herein  mentioned, 
and  to  keep  same  on  file  in  the  quarters  of  said  Bureau,  temporarily 
or  permanently,  according  to  the  time  for  which  such  literature  may 
be  needed  or  may  be  available.  It  shall  further  be  the  duty  of  said 
Director  to  collect,  compile,  classify  and  index  the  charters,  fran- 


Appendix  409 

chises,  ordinances  and  departmental  reports  of  this  and  other  cities; 
to  accumulate  data  and  statistics  regarding  the  practical  operation 
and  affect  of  municipal  charters,  laws  and  ordinances  in  this  and 
other  cities. 

d.  It  shall  be  the  duty  of  the  Director  of  the  Municipal  Reference 
Bureau  to  submit  to  the  President  of  the  University  of  Cincinnati, 
at  the  times  and  in  the  manner  prescribed  for  the  submission  of 
departmental  estimates  for  the  annual  budget  and  semi-annual 
appropriation  ordinances,  estimates  respectively  of  the  expense  of 
maintaining  the  Municipal  Reference  Bureau  for  the  following  year 
and  the  ensuing  six  months  periods.  Such  estimates  shall  be  the 
basis  of  the  estimates  for  said  Bureau  as  submitted  by  the  Univer- 
sity of  Cincinnati  to  the  Mayor  and  Council.  All  payments  for 
the  support  and  maintenance  of  the  Municipal  Reference  Bureau 
shall  be  made  only  upon  the  recommendation  of  the  Director  of 
the  Municipal  Reference  Bureau,  and  the  authorization  of  the  Board 
of  Directors  of  the  University  of  Cincinnati. 

e.  Subject  to  the  limitations  of  the  appropriations  duly  made 
for  such  purpose,  the  Board  of  Directors  of  the  University  of  Cin- 
cinnati shall  appoint,  upon  the  nomination  of  the  Director  of  the 
Municipal  Reference  Bureau,  a  cataloger,  a  stenographer,  and  such 
other  assistants  as  shall  be  required  for  the  proper  care  and  main- 
tenance of  the  Municipal  Reference  Bureau.  The  salaries  of  the 
Director  of  the  Municipal  Reference  Bureau  and  of  all  other  employes 
shall  be  fixed  by  the  Board  of  Directors  of  the  University  of  Cin- 
cinnati in  such  amounts  as  shall  be  deemed  appropriate,  which 
salaries  shall  be  paid  in  the  same  manner  and  at  the  same  times  as 
the  salaries  of  other  employes  of  the  Board  of  Directors  of  the  Uni- 
versity of  Cincinnati. 

f.  The  Board  of  Directors  of  the  University  of  Cincinnati  shall 
duly  pass  and  adopt  such  rules,  resolutions  and  regulations  as  will 
carry  out  and  put  into  effect  the  establishment  of  said  Bureau  and 
the  use  therefor  of  said  space  or  quarters  upon  the  terms  and  con- 
ditions specified  in  this  ordinance.  The  said  Board  may  from  time 
to  time  adopt  any  rule  or  regulation  concerning  said  Bureau  which 
may  receive  the  recommendation  of  the  Director  of  said  Bureau 
and  may  be  consistent  with  this  ordinance.  The  said  Board  of 
Directors  shall,  previous  to  the  occupancy  of  any  portion  of  the  City 
Hall  for  the  use  of  said  Bureau,  formally  consent  to  such  use  upon  the 
aforesaid  terms  and  conditions  and  certify  such  consent  to  the  Clerk 
of  this  Council. 

Section  2.  It  shall  be  the  duty  of  each  officer  of  the  city,  the  head 
of  each  city  department  and  of  the  committee  of  the  City  Council, 
to  aid  and  assist  the  Director  of  the  Municipal  Reference  Bureau 
by  furnishing  to  him  reports  and  copies  of  such  correspondence, 
opinions  and  decisions  as  in  the  opinion  of  the  Director  may  be  of 
value  for  future  reference. 

Sec.  3.  This  ordinance  shall  take  effect  and  be  in  force  from  and 
after  the  earliest  period  allowed  by  law. 


410  Appendix 

KANSAS  CITY,  MO.« 

An  Ordinance  to  Create  a  Municipal  Reference  Library  for  Kansas 
City.     Outlining  its  Scope  and  Providing  for  The  appointment  of 
Trustees,  A  Librarian  and  Other  Employees  for  the  Same. 
Be  it  Ordained  by  the  Common  Council  of  Kansas  City: 

Sec.  1.  There  is  hereby  established  for  Kansas  City  what  shall 
be  known  as  the  Municipal  Reference  Library  for  the  use  of  the 
Common  Council,  city  officials  and  heads  of  departments  of  the  city 
government  to  help  them  in  making  a  thorough  investigation  of  all 
municipal  problems  that  may  arise  and  thus  to  aid  them  in  the 
discharge  of  their  duties.  Such  library  shall  be  located  in  the  City 
Hall  or  in  close  proximity  thereto.  It  shall  be  the  duty  of  the  Board 
of  Public  Works  to  provide  suitable  quarters  for  such  library. 

Sec.  2.  The  Mayor  of  Kansas  City,  the  President  of  the  Commer- 
cial Club,  the  President  of  the  Industrial  Council,  the  President  of 
the  Kansas  City  Bar  Association,  and  the  President  of  the  City  Club 
shall,  during  their  incumbency  of  their  respective  offices,  be  ex  officio 
trustees  of  such  library.  They  shall  receive  no  compensation  for 
their  services.  The  trustees  shall  have  general  control  over  the  library 
and  of  all  additions  thereto  and  shall  make  all  appointments  of 
employees  therein  subject  to  the  provisions  of  Article  XV.  of  the 
City  charter  entitled  "Civil  Service." 

Sec.  3.  There  shall  be  a  librarian  who  shall  have  immediate 
charge  and  supervision  of  such  library.  It  shall  be  the  duty  of  the 
librarian  to  collect,  compile,  classify  and  index  charters,  laws, 
ordinances,  official  and  department  reports  of  this  and  other  cities; 
to  gather  all  data,  reports  and  statistics  on  municipal  subjects  from 
other  cities;  to  collate  facts  from  magazines,  newspapers  and  reports 
of  organizations  working  along  the  lines  of  municipal  reform  and  civic 
betterment;  to  accumulate  all  data  and  statistics  obtainable  regard- 
ing the  practical  operation  and  effect  of  municipal  laws  and  ordi- 
nances in  this  and  other  cities;  to  collect  all  available  information 
relating  to  any  matter  which  may  be  the  subject  of  proposed  legis- 
lation by  the  Common  Council;  to  make  a  written  report  to  the 
Common  Council  or  any  committee  thereof,  any  city  official,  or 
head  of  department,  or  member  of  the  state  legislature  from  Jackson 
County  of  the  laws,  ordinances,  reports,  statistics,  or  other  available 
information  relating  to  any  particular  subject  of  municipal  concern; 
to  prepare  or  advise  in  the  preparation  of  any  bill,  resolution  or 
ordinance,  when  requested  so  to  do  by  any  member  of  the  common 
council,  city  official,  head  or  department,  or  member  of  the  legislature 
from  Jackson  County;  to  preserve  and  collate  all  information 
obtained,  all  books,  reports,  statements  and  documents  and  carefully 
arrange  and  index  the  same  so  that  it  may  be  at  all  times  easily 
accessible  to  the  common  council,  city  officials,  heads  of  departn  ents, 

"  This  bureau  was  taken  over  by  the  public  service  committee 
of  the  council,  on  an  order  from  the  Mayor,  after  the  council  had 
failed  to  appropriate  for  its  maintenance. 


Appendix  411 

and  members  of  the  legislature  from  Jackson  County;  to  keep  the 
library  open  to  the  inspection  and  use  for  reference  purposes  of  the 
general  public  and  to  secure  such  literature  from  the  public  library 
of  the  school  district  of  Kansas  City,  and  keep  it  on  file  either  tem- 
porarily or  permanently  as  may  have  bearing  upon  any  question 
under  discussion  or  consideration  by  the  public  officials,  provided, 
arrangements  can  be  made  with  the  directors  of  said  district  for 
that  purpose. 

Sec.  4.  It  shall  be  the  duty  of  the  head  of  each  city  department 
and  city  official  to  aid  and  assist  said  Librarian  of  the  Municipal 
Reference  Library  by  furnishing  reports  and  also  all  other  documents 
and  copies  of  such  correspondence,  opinions  and  decisions,  as  in  the 
opinion  of  said  librarian  may  be  of  value  to  said  reference  library. 
All  exchanges,  books,  documents,  and  reports  issued  by  this  city 
with  other  cities  shall  be  made  through  said  librarian.  Annually 
the  Hbrarian  shall  issue  a  city  manual  giving  statistical  and  other 
information  about  the  city  and  its  government. 

Sec.  5.  The  trustees  of  the  Municipal  Reference  Library  shall 
have  power  to  make  rules  and  regulations  for  the  government  of 
said  library  as  well  as  the  use  of  all  books,  documents  and  reports 
therein  contained  and  the  taking  of  the  same  therefrom  and  to 
amend,  alter  or  repeal  any  such  rule. 

Sec.  6.  Any  member  of  the  Common  Council,  head  of  depart- 
ment or  city  official,  shall  have  the  right  to  take  any  book,  report 
or  ordinance,  document  or  statistical  publication  from  the  said  library 
for  use  in  his  office  or  department,  and  shall  have  the  right  to  retain 
the  same  for  a  reasonable  time,  to  be  fixed  by  rule,  provided  how- 
ever, that  the  same  shall  not  be  taken  from  the  City  Hall.  Any 
person  taking  or  receiving  any  such  book,  document,  ordinance  or 
report,  shall  be  personally  liable  for  the  return  thereof,  and  in  case 
of  its  loss  or  destruction,  for  the  value  thereof. 

Section  7.  The  salary  of  said  librarian  shall  be  $L800.00  per  year 
payable  monthly  as  other  city  officials  are  paid,  and  he  shall  be 
required  to  give  bond  in  the  sum  of  $2,000  with  proper  sureties 
conditioned  for  the  faithful  discharge  of  his  duties  and  that  he  will 
honestly  account  for  all  property  belonging  to  said  city  which  shall 
come  into  his  possession. 

Sec.  8.  The  Purchasing  Agent  shall  supply  said  Library  with 
all  needed  books,  filing  cases,  shelves,  tables,  desks,  and  other 
furniture  and  equipment  necessary  to  equip  the  same,  and  shall 
upon  requisition  from  said  Trustees  supply  all  needed  stationery 
and  supplies.  A  Reference  Room  shall  be  provided  in  said  library, 
furnished  with  tables,  chairs,  etc.,  necessary  for  the  use  of  all  persons 
entitled  to  use  the  same. 

Sec.  9.  The  trustees  may  employ  a  stenographer  at  a  salary 
of  not  to  exceed  $60.00  a  month,  whenever  said  trustees  shall  decide 
that  such  employment  is  necessary. 

Sec.  10.  The  librarian  shall  make  a  complete  inventory  of  all 
books  which  he  shall  receive  from  any  source  and  keep  the  same 


412  Appendix 

constantly  on  file  in  his  office.  He  shall  make  a  report  to  the  trus- 
tees and  they  in  turn  to  the  Common  Council  of  all  their  transactions 
at  the  close  of  each  fiscal  year. 

Sec.  11.  It  shall  be  the  duty  of  all  city  officials  and  heads  of 
departments  to  make  reports  from  time  to  time  in  writing  of  all 
matters  occurring  in  their  office  or  department  which  shall  be  of 
public  interest.  Such  reports  shall  be  made  to  the  Mayor,  but 
shall  be  filed  and  preserved  in  the  Municipal  Reference  Library  and 
in  the  discretion  of  said  trustees  may  be  printed  for  public  dis- 
tribution. 

Sec.  12.  It  shall  be  the  duty  of  the  city  counselor  to  designate 
one  of  his  assistants  to  act  as  draughtsman  to  aid  the  librarian  in 
the  preparation  of  any  bill,  ordinance  or  resolution  which  he  may 
be  requested  to  prepare. 

Sec.  13.  All  ordinances  or  parts  of  ordinances,  are,  insofi>.r  as 
thev  conflict  with  this  ordinance,  hereby  repealed. 

Passed  Aug.  15,  1910. 

MILWAUKEE. 

128  —  An  Ordinance 
To  create  a  Municipal  Reference  Library  for  the  City  of  Milwaukee 
and  outlining  the  scope  of  same  and  the  duties  of  the  librarian, 
and  to  repeal  an  ordinance  entitled  "An  Ordinance  to  create  a 
Municipal  Reference  Library  for  the  City  of  Milwaukee  and 
outlining  the  scope  of  same  and  duties  of  librarian,  passed  Feb- 
ruary' 3,  1908,  as  amended  by  an  ordinance  passed  June  1,  1908." 
The  Common  Council  of  the  City  of  Milwaukee  do  ordain  as  follows. • 

Sec.  1.  The  Board  of  Trustees  of  the  Milwaukee  Public  Library 
is  hereby  authorized  and  directed  to  establish  in  the  City  Hall  a 
branch  or  department  of  said  public  library,  to  be  known  as  the 
Municipal  Reference  Library  of  the  City  of  Milwaukee;  and  the 
Department  of  Public  Works  is  hereby  authorized  and  directed  to 
arrange  and  prepare  proper  and  permanent  quarters  therefor. 

Sec.  2.  It  shall  be  the  duty  of  the  trustees  of  the  Milwaukee 
Public  Library,  within  thirty  (30)  days  after  the  passage  and  publi- 
cation of  this  ordinance,  and  thereafter  whenever  a  vacancy  shall 
occur,  to  elect  upon  the  nomination  of  the  Librarian  of  the  Mil- 
waukee Public  Library,  an  officer  who  shall  be  called  the  Librarian 
of  the  Municipal  Reference  Library.  The  Librarian  of  the  Municipal 
Reference  Library  so  appointed  shall  be  an  expert  in  political  science. 
political  economy  and  statistics.  He  shall  hold  office  during  good 
behavior  and  shall  be  subject  to  removal  in  accordance  with  the 
rules  governing  other  employes  of  the  Milwaukee  Public  Library. 

Sec.  3.  It  shall  be  the  duty  of  such  Librarian  to  collect  and 
compare  the  laws  of  this  and  other  states  and  the  ordinances  of  this 
and  other  cities,  and  report  upon  the  laws  and  ordinances  pertaining 
to  any  subject  upon  which  he  may  be  requested  to  report  by  the 
Mayor,  any  committee  or  member  of  the  Common  Council  of  said 
city,  or  the  head  of  any  city  department  of  said  city;  to  accumulate 


Appendix  413 

all  data  obtainable  in  relation  to  the  practical  operation  and  effect 
of  such  laws  and  ordinances;  to  collect  all  available  information 
relating  to  any  matter  which  may  be  the  subject  of  proposed  legis- 
lation by  the  Common  Council;  to  prepare  or  advise  in  the  prep- 
aration of  any  bill  or  ordinance  or  resolution  when  requested  to 
do  so  by  any  member  of  the  Common  Council;  to  preserve  and  collate 
all  information  obtained  and  carefully  index  and  arrange  the  same 
so  that  it  may  be  at  all  times  easily  accessible  to  the  city  officials 
and  open  to  the  inspection  and  use  for  reference  purposes  by  the 
general  public,  and  to  secure  such  literature  from  the  Public  Library 
and  keep  it  on  file,  either  temporarily  or  permanently,  as  may  have 
bearing  upon  any  question  or  questions  under  discussion  or  con- 
sideration by  the  public  officials  of  the  City  of  Milwaukee  herein 
mentioned. 

All  such  duties  as  are  herein  defined  shall  be  performed  under 
the  supervision  and  direction  of  the  Librarian  of  the  Milwaukee 
Public  Library,  and  said  Librarian  of  the  Milwaukee  Public  Library, 
and  no  other  person,  shall  be  considered  the  superior  officer  of  the 
Librarian  of  the  Municipal  Reference  Library. 

Sec.  4.  It  shall  be  the  duty  of  the  head  of  each  city  depart- 
ment to  aid  and  assist  said  Librarian  of  the  Municipal  Reference 
Library  by  furnishing  reports  and  copies  of  such  correspondence, 
opinions  and  decisions  as  in  the  opinion  of  said  Librarian  of  the 
Municipal  Reference  Library  may  be  of  value  for  future  reference. 
It  shall  be  the  duty  of  the  City  Attorney  of  said  city  to  aid  said 
Librarian  of  the  Municipal  Reference  Library  in  the  preparation  of 
any  bill,  ordinance,  resolution  or  other  measure,  when  so  requested 
by  said  Librarian. 

Sec.  5.  The  trustees  of  the  Milwaukee  Public  Library  shall 
adopt  all  rules  and  regulations  for  the  use  of  the  Municipal  Reference 
Library. 

Sec.  6.  The  salary  of  said  Librarian  of  the  Municipal  Reference 
Library  and  other  employes  thereof  shall  be  fixed  by  the  trustees 
of  the  Public  Library  in  such  amounts  as  they  shall  deem  appropriate 
which  salaries  shall  be  paid  at  the  same  time  and  in  the  same  manner 
as  the  salaries  of  other  employes  of  the  Public  Library. 

Sec.  7.  It  shall  be  the  duty  of  the  Board  of  Trustees  of  the 
Milwaukee  Public  Library  to  provide  such  additional  help  as  may 
be  necessary  for  the  proper  care  and  maintenance  of  the  Municipal 
Reference  Library. 

Sec.  8.  For  the  purpose  of  maintaining  said  library  and  paying 
the  salary  of  the  Librarian  and  employes  thereof,  there  is  hereby 
annually  appropriated  the  sum  of  five  thousand  (5,000)  dollars  from 
the  general  city  fund  and  added  to  the  funds  of  the  Milwaukee  Public 
Library.  Any  surplus  which  may  remain  from  said  annual  appro- 
priation shall  become  and  continue  to  be  a  part  of  the  funds  of  the 
Milwaukee  Public  Library,  and  any  deficit  which  may  arise  as  the 
result  of  maintaining  said  Municipal  Reference  Library  shall  be 
paid  from  the  funds  of  the  Milwaukee  Public  Library. 


414  Appendix 

Sec.  9.  The  Board  of  Trustees  of  the  Milwaukee  Public  Library 
shall  provide  the  said  Librarian  with  all  furniture  and  other  equip- 
ment needed  for  said  library  and  may  add  to  the  same  from  time 
to  time  as  required,  and  shall  supply  said  Librarian  with  all  needed 
stationery  and  supplies. 

Sec.  10.  All  material  and  equipment,  books,  documents  and 
data  of  every  kind  and  nature  now  held  by  the  Municipal  Reference 
Library  of  the  City  of  Milwaukee  is  hereby  transferred  to  the  Mil- 
waukee Public  Library;  provided,  however,  that  the  said  Milwaukee 
Public  Library  shall  maintain  the  said  Municipal  Reference  Library' 
as  a  branch  of  the  said  Milwaukee  Public  Library,  to  be  installed 
in  the  City  Hall,  as  hereinbefore  in  this  ordinance  specifically  pro- 
vided. 

Sec.  11.  An  ordinance  entitled  "An  Ordinance  to  create  a  Muni- 
cipal Reference  Library  for  the  City  of  Milwaukee  and  outlining 
the  scope  of  same  and  duties  of  Librarian,"  passed  February  3,  1908, 
as  amended  by  an  ordinance  passed  June  1,  1908;  and  all  ordi- 
nances or  parts  of  ordinances  contravening  the  provisions  of  this 
ordinance,  are  hereby  repealed. 

Sec.  12.  This  ordinance  shall  take  effect  and  be  in  force  from 
and  after  its  passage  and  publication. 

Passed  Jan.  3,  1911. 

An  Ordinance 
Creating  the  Bureau  of  Municipal  Research  '^  and  providing  for  the 

appointment,  fixing  term  and  salaries  and  prescribing  duties  of 

officers  and  employes  thereof. 

The  Mayor  and  Common  Council  of  the  city  Milwaukee  do  ordain 
as  follows: 

Sec.  1.  There  is  hereby  created  in  and  for  the  city  of  Milwaukee 
a  department  to  be  known  as  the  "Bureau  of  Municipal  Research," 
and  the  offices  of  director  of  Bureau  of  Municipal  Research  and 
assistant  director  of  Bureau  of  Municipal  Research,  and  the  position 
of  stenographer  in  said  bureau,  are  hereby  created. 

Sec.  2.  The  director  shall  he  appointed  by  the  mayor  and  con- 
firmed by  a  majority  of  the  members  elect  of  the  Common  Council. 
The  director,  before  entering  upon  the  duties  of  his  ofifice,  shall  take 
and  subscribe  the  oath  of  ofiice  prescribed  by  the  constitution  and 
laws  of  the  state,  and  file  the  same,  duly  certified  by  the  officer 
administering  the  same,  with  the  city  clerk. 

Sec.  3.  The  term  of  office  of  the  first  director  shall  begin  upon 
his  confirmation  and  qualification  as  provided  for  in  section  2  of 
this  ordinance,  and  shall  continue  until  the  third  Tuesday  of  April, 
1914,  and  until  his  successor  shall  have  been  appointed  and  con- 
firmed and  shall  have  qualified.  The  term  of  office  of  each  suc- 
ceeding director  shall  be  co-extensive  with  the  term  of  office  of  the 

'^This  bureau  supplanted  the  former  Bureau  of  Economy  and 
Efficiency;   the  municipal  reference  library  still  remains. 


Appendix  415 

mayor  by  whom  he  shall  have  been  appointed,  and  until  his  suc- 
cessor shall  have  been  appointed  and  confirmed  and  shall  have 
qualified. 

Sec.  4.  In  case  of  a  vacancy  in  the  office  of  director,  the  mayor 
shall  appoint  a  successor,  who  shall  hold  office  during  the  unexpired 
term  and  until  his  successor  shall  have  been  appointed,  confirmed 
and  shall  have  qualified.  The  provisions  of  section  2  hereof  shall 
apply  to  all  appointments  to  fill  vacancies. 

Sec.  5.  The  assistant  director  and  the  stenographer  shall  be 
appointed  by  the  director,  subject  to  and  in  accordance  with  the 
civil  service  laws  applicable  to  the  city  of  Milwaukee.  The  assis- 
tant director  shall,  before  entering  upon  the  duties  of  his  office,  take 
and  subscribe  the  oath  of  office  prescribed  by  the  constitution  and 
laws  of  the  state,  and  file  the  same,  duly  certified  by  the  officer 
administering  the  same,  with  the  city  clerk. 

Sec.  6.  The  director  shall  receive  a  salary  of  three  thousand 
dollars  ($3,000.00)  per  annum.  The  assistant  director  shall  receive 
a  salary  of  one  thousand  eight  hundred  dollars  ($1,800.00)  per 
annum.  The  stenographer  shall  receive  a  salary  of  sixty-five  dollars 
($65.00)  per  month.  Such  salaries  shall  be  paid  monthly  out  of 
the  city  treasury  in  the  same  manner  as  other  city  salaries  are  paid. 
All  sums  of  money  shall  be  chargeable  to  the  fund  provided  for  the 
Bureau  of  Efficiency  and  Economy  during  the  remainder  of  the 
present  fiscal  year,  and  until  a  fund  is  created,  as  provided  by  law, 
in  the  next  budget.  A  separate  fund  shall  be  created  each  year 
in  tlie  budget  for  the  purposes  of  this  ordinance. 

Sec.  7.  The  director  shall  be  under  the  direction  of  the  comp- 
troller in  regard  to  making  audits,  which  shall  be  made  at  such 
times  as  the  mayor  may  direct,  of  all  financial  books,  records  and 
accounts  of  the  city  and  the  several  departments  thereof,  and  of  all 
boards  or  commissions  which  receive  or  disburse  municipal  funds, 
and  also  under  the  direction  of  the  comptroller  to  devise  forms  and 
methods  for  bookkeeping  and  accounts  for  the  several  departments 
of  the  city,  and  assist  the  officers  and  employes  of  the  several  depart- 
ments in  the  installation  and  use  of  the  same;  and  it  shall  also  be 
his  duty,  under  the  direction  of  the  mayor,  to  apply  tests  of  efficiency 
of  departments  and  persons  in  the  service  of  the  city;  to  gather  and 
tabulate  all  available  statistics  of  municipal  governmental  activities 
that  in  his  judgment  or  the  judgment  of  the  mayor  may  be  of  service 
or  benefit  to  the  city,  whether  such  governmental  activities  apply 
to  this  city  or  not,  and  he  shall  make  monthly  reports  to  the  major 
showing  the  result  of  the  work  of  such  bureau,  both  in  its  com- 
pleted and  in  its  progressive  stages,  and  to  make  an  annual  report  to 
the  Common  Council  showing  in  final  summaries  the  result  of  all 
work  undertaken  by  the  bureau,  said  annual  report  to  be  made  on 
the  first  day  of  June  in  each  year. 

Sec.  8.  The  comptroller  and  director  shall  at  all  times  comply 
with  all  requests  or  demands  made  by  the  mayor  for  investigations , 
audits  and  reports. 


416  Appendix 

Sec.  9.  The  assistant  director  shall  perform  such  duties  as  may 
be  assigned  by  the  director.  In  case  of  vacancy  in  the  office  of 
director  of  Bureau  of  Municipal  Research,  the  assistant  director 
shall  have  full  power  and  authority,  and  it  is  hereby  made  his  duty 
to  exercise  the  powers  and  perform  the  duties  of  director  of  Bureau 
of  Municipal  Research  until  such  vacancy  shall  be  filled  by  appoint- 
ment of  a  successor,  as  provided  in  section  4  hereof. 

Sec.  10.  Each  and  every'  officer  of  the  city  shall,  upon  request 
of  the  director,  submit  such  books,  records,  vouchers,  papers  and 
other  matters  pertaining  to  the  accounts  of  the  city  or  of  the  several 
departments  thereof  and  in  the  possession  of  any  such  officer,  to 
the  director  for  his  examination. 

Sec.  10-a.  All  parts  of  ordinances  contravening  the  provisions 
of  this  ordinance  are  hereby  repealed. 

Sec.  11.  This  ordinance  shall  take  effect  and  be  in  force  from 
and  after  its  passage  and  publication. 

Passed  September  30,  1912. 

ST.  LOUIS. 

[On  January  27,  1911,  the  following  joint  resolution  was  passed 
by  the  Municipal  Legislature:] 

"Be  it  resolved  by  the  Council  of  the  City  of  St.  Louis,  the  House 
of  Delegates  concurring  therein: 

"That  the  Board  of  Directors  of  the  St.  Louis  Public  Library 
be  and  they  are  hereby  requested  to  establish  with  all  convenient 
expedition  a  branch  of  said  Library-  in  the  City  Hall,  to  be  known 
as  the  Municipal  Reference  Branch,  to  be  located,  if  possible,  upon 
the  first  "or  second  floors  of  the  City  Hall  and  readily  accessible  to 
the  Houses  of  Legislation. 

".■\nd  that  the  Slayor,  President  of  the  Board  of  Public  Improve- 
ments and  other  appropriate  officers  of  the  city  be  and  they  are 
hereby  requested  to  provide  and  assign  proper  quarters  for  said 
Branch  in  the  City  Hall." 

PUBLICATIONS  OF  BUREAUS   OF    MUNICIPAL 

RESEARCH  AND  MUNICIPAL  REFERENCE 

LIBRARIES. 
Baltimore. 

Bureau  of  State  and  Municipal  Research  Institutional  Supplies. 
19i:j. 

Baltimore  —  Legislative  Reference,  Department  of. 
Annual  Report,  1907-,  Baltimore,  1908-. 

.     Summary  of  the   Expenditures  of  the  various  States. 

8  p.     1909. 

Chicago. 

Chicago  Bureau  of  Public  Efficiency. 
Publications.      191 1-. 


Appendix  417 

1.  Method  of  preparing  and  administering  the  Budget  of  Cook 
County,  Ilhnois.     53  p.     January,  1911. 

2.  Proposed  Purchase  of  Voting  Machines  by  the  Board  of 
Election  Commissioners  of  the  City  of  Chicago.     May,  1911 

3.  Street  Pavement  Laid  in  the  Citv  of  Chicago:  An  Inquiry 
into  Paving  MateriaL,  Methods  and  Results.     June    1911 

4.  Electrolysis  of  Water  Pipes  in  the  City  of  Chicaeo.  71  n 
July,  1911.  ^' 

5.  Administration  of  the  Office  of  Recorder  of  Cook  County 
Illinois.     63  p.     September,  1911, 

6.  Plea  for  Publicity  in  the  Office  of  County  Treasurer 
11  p.     October,  1911. 

7.  Repairing  Asphalt  Pavement:  Work  done  for  the  City  of 
Chicago  under  Contract  of  1911.     20  p.     October   1911 

8.  Municipal  Court  Acts:  Two  Related  Propositions  upon 
which  the  Voters  of  Chicago  will  be  Asked  to  Pass  Judgment 
at  the  Election  of  November  7  —  Vote  No.     Oct.  31    1911 

r^  u  ■     '^T^T^  ^y^^^"  ^'^'■^^  System  of  the  Citv  of  Chicago.     By 
Dabney  H.  Maury.     December,  1911. 

10.  Bureau  of  Streets:  Civil  Service  Commission;  and  Special 
Assessment  Accounting  System  of  the  City  of  Chicago.  112  p 
December,  1911.  ^' 

11.  _  Administration  of  the  Office  of  Coroner  of  Cook  County 
Illinois.     December,  1911. 

12.  Administration  of  the  Office  of  Sheriff  of  Cook  County 
Ilhnois.     December,  1911. 

13.  Administration  of  the  Office  of  the  Clerk  of  the  Circuit 
Court  and  of  the  Office  of  Clerk  of  the  Superior  Court  of  Cook 
County,  Illinois.     50  p.     December,  1911. 

iqff'     ^^^  Judges  and  the  County  Fee  Offices.     15  p.     Dec.  19, 

15.     General    Summary   and    Conclusions    of    Report    on    the 
Park  Governments  of  Chicago.     16  p.     December,  1911. 
.u^•^■r^^^^■  ^^.^^   Governments   of   Chicago:     An    Inquiry    into 
theirOrganizationand  Methods  of  Administration.    182  p    Decem- 
ber, 1911. 

17.  Offices  of  the  Clerks  of  the  Circuit  and  Superior  Courts- 
a  Supplemental  Inquiry  into  their  Organization  and  Methods 
ot  Administration.     27  p.     November,    1912. 

18.  Administration  of  the  Office  of  the  Clerk  of  the  County 
in*^  ^kh         County,  Illinois.     43  p.     November,  1912 

19.  Officeof  Sheriff  of  Cook  County,  Illinois:  A  Supplemental 
Inquiry  into  its  Organization  and  Methods  of  Administration. 
2b  p.     November,  1912. 

20.  Growing  Cost  of  Elections  in  Chicago  and  Cook  County. 
ty  p.     Uec.  oO,  1912. 

21.  The  Voting  Machine  Contract.  A  Protest  Against  its 
Recognition  in  any  form  by  the  City  Council  of  the  City  of 
Chicago.     12  p.     Jan.  1,  1913. 


418  Appendix 

22.  Officeof  County  Treasurer  of  Cook  County,  111.:  An  Inquiry 
into'the  Administration  of  its  Finances  with  Special  Reference  to 
theQuestionof  Interest  on  Public  Funds.     67  p.     November,  1913. 

23.  The  Nineteen  Local  Governments  of  Chicago.  31  p.  Charts, 
Tabs.  maps.     Dec,  1913. 

Chicago  —  Chicago  Commission  on  City  Expenditures. 

Preliminarv  Report:  Department  of  Electricity.    39  p.    1910. 

.     House  of  Correction,  40  p.     1910. 

.     Street  Paving,  34  p.     1910. 

Chicago    Public    Library  —  Municipal    Reference    Library. 
Rates  of  Fare  of  Public  Motor  Vehicles  in  Fifteen  Large  Cities. 
[8  p.]     Chicago,  1913.     {Municipal  Reference  Bulletin  No.  I.) 
Chicago  —  Statistics  and  Municipal  Library,  Bureau  of. 

Catalogue  of  the  Chicago  Municipal  Library,  1908.     149  p. 
[Chicago]  1908. 

.     Chicago    City     Manual,     4  v.      1908-1911.      Chicago, 

1908-11. 

.     City  of  Chicago  Statistics  (Quarterly)  1902-.     Chicago, 

1902-. 

Cincinnati. 

Cincinnati  Bureau  of  Municipal  Research. 

(Publications.)     Cincinnati,  1910-. 
Contents: 

Paving  Reports  Nos.  1-6. 

Reply  of  Director  Sundmaker  to  Paving  Report  No.  1  and 

Rejoinder  of  Bureau. 
Reply   to    Chief   Engineer's   Communication  to   Director  of 

Public  Service  in  re  the  Bureau's  Paving  Report  No.  5. 
The   Cincinnati   Bureau   of   Municipal    Research:     Its  First 

Year's  Work,  1910-1911. 
Street  Lighting  Report  No.  1. 
Budget  Report  No.  1:  The  City's  Annual  Budget. 
The  Board  of  Health. 
Deposit  of  City  Funds. 
Second  Annual  Report.     1911-1913. 
Juvenile  Court  of  Hamilton  County. 
Information  for  Citizens,  Nos.  1-2. 
Over-.Age  in  the  Cincinnati  Elementary  Day  Schools. 
The  House  of  Refuge. 
Report    on    the    Truancy    Department    of    the    Board   of 

Education   (abridged). 
Schools  as  Social  Centers.     6  p.     1913. 

D.^YTON,  Ohio. 

Davton  (O.)   Bureau  of  Municipal  Research. 
Appropriations  for  the  Fiscal  Half  Year,  ending  June  30,  1913. 
31  p.     Dayton,  1913. 


Appendix  419 

.     Government  by  Deficit.     No.  1-,  1913-. 

.     Health  Bulletin.     1-.     1913-. 

.     A  Plan  to  Place  the  Water  Works  upon  a  Self-sustaining 

Basis  and  to  Complete  the  Proposed  Additional  Water  Supply  and 
Betterment  of  the  Distributing  Mains  for  Dayton  ...  28  p. 
Dayton,  1913. 

.     Shall  we  change  our  City  Government?     A  Statement 

of  three  Types  of  Municipal  Administration  ...  16  p.  Dayton, 
1912. 

Bibliography  p.  16. 

Kansas  City  (Mo.) 

Kansas  City-Municipal  Reference  Library. 

The  Municipal  Reference  Library  as  a  Business  Investment, 
by  Charles  H.  Talbot,  Municipal  Reference  Librarian.  8  p. 
Kansas  City,  1912. 

Memphis. 

Memphis  Bureau  of  Municipal  Research. 
Report.     Oct.,  1909.     202  p. 

A  critical  study  of  some  phases  of  municipal  government  in  Memphis. 

Milwaukee. 

Milwaukee  —  Economy  and    Efficiency,    Bureau   of. 

Bulletins,  No.  1-19,  Milwaukee,  1911-12. 
Contents. 

1.  Plans  and  Methods,  29  p.     1911. 

2.  Alarm  Telegraph  Systems,  23  p.     1911. 

3.  Garnishment  of  Wages,  27  p.     1911. 

Published  by  Wis.  Bureau  of  Labor  and  Industrial  Statistics. 

4.  Women's  Wages  in  Milwaukee.     18  p.  1911. 

Published  by  the  Wisconsin  Consumers'  League. 

5.  The  Refuse  Incinerator.     1911.     75  p. 

6.  Citizens'  Free  Employment  Bureau.     15  p.     1911. 

7.  Free  Legal  Aid.     16  p.     1911. 

8.  The  Newsboys  of  Milwaukee.     96  p.     1911. 

9.  Review  of  the  Bureau's  Work.     12  p.     1911. 

10.  Plumbing  and  House  Drain  Inspection.     33  p.     1911. 

11.  Water  Works  Efficiency  —  1.  Water  Waste  Survey.     39  p. 

1911. 

12.  Garbage  Collection.     24  p.     1911. 

13.  Health  Department  —  1.  Milk  Supply.     45  p.     1912. 

14.  Water  Works  Efficiency  —  2.    Present  Capacity  and  Future 

Requirement.     23  p.     1912. 

15.  Health  Department  —  2.  Education  and  Publications. 

16.  Water  Works  Efficiency  —  3.   Operating  Efficiency.     30  p. 

1912. 

17.  Recreation  Survey.     31  p.     1912. 


420  Appendix 

18.  Health  Department  —  3.     Communicable  Diseases.     37  p. 
1912. 

19.  Eighteen  Months'  Work.     44  p.     1912. 

Milwaukee  —  Municipal  Research,   Bureau  of. 

Standardization  of  Salaries  of  the  City  of  Milwaukee.     96  p. 
1913. 

New  York. 

Bureau  of  Municipal  Research.'^     1906-. 
Budget. 

Cincinnati's  First  Municipal  Budget. 

How  Sould  Public  Budgets  be  Made? 

How  to  Keep  Watch  on  the  City  Budget. 

.Making  a  Municipal  Budget. 

New  York's  Budget  Kindergarten. 

Scientific  Budget  Making. 

Would  a  Budget  Exhibit  Help  Your  City? 

Charities. 

Report  on  Department  of  Charities,  Syracuse,  N.  Y. 
City  Government. 

Efficiency  in  City  Government.     (Pamphlet.) 
Municipal  Reform  through  Revision  of  Business  Methods. 
Organization  and  Administration,  Atlanta,  Ga. 
Organization  and  .Administration,  Dayton,  Ohio. 
Organization  and  .\dministration,  St.  Louis,  Mo. 
Organization  and  .\dministration,  Springfield,  Mass. 
Organization  and  Business  Methods,  Portland,  Oregon. 
Opportunity   and    Need    for    Civic  Co-operation  with    Public 

Officials  in  the  Four  Oranges. 
Preliminary  Survey,  Milwaukee,  Wis. 
Survev  of  Certain  Departments,  Pittsburgh,  Pa. 
What  Should  New  York's  Next  Mayor  Do? 

Education. 

Conditions  and  Needs  of  Rural  Schools  in  Wisconsin. 
Digest  of  New  York  School  Inquiry. 
Health  and  Education,  Atlanta,  Ga. 
Health  and  Education,  Syracuse,  N.  Y. 

"Compiled  from  lists  submitted  by  the  Bureau.  In  addition 
to  these  titles  the  Bureau  or  the  members  of  its  staff  have  pub- 
lished other  matter  along  similar  lines  as  follows:  Allen,  Civics  and 
Health,  Efficient  Democracy,  Woman's  Pari  in  Government ;  Bruere, 
New  CityGovernmetit;  Cleveland,  Organ zseti  Democracy,  Municipal 
Administration  and  Accounting;  Sneddcnand  AWen,  School  Reports 
and  School  Efficiency;  Denison,  Helping  School  Children. 


Appendix  421 

Outside  Co-operation  with  the  Public  Schools  of  Greater  New 

York. 
Questions  Answered  by  School  Reports  As  They  Are. 
School  Progress  and  School  Facts. 

School  Stories.     Illustrated  Guide  to  School  Subjects  of  Interest. 
Waterbury  and  St.  Paul.     Help  Your  School  Survey. 

Finance. 

Department  of  Municipal  Audit  and  Examination. 
Finance,  Budget  and  Accounting  Methods,  Syracuse,  N.  Y. 
Investigation  of  the  Office  of  Commissioners  of  Accounts.  New 

York  City. 
Handbook  on    Municipal   Accounting   (A  Compilation  of  the 

"Short    Talks   on    Municipal    Accounting    and    Reporting," 

issued  separately.) 
Memorandum  of  Matters  relating  to  New  York  City's  Debt  that 

suggest  the  Necessity  for  Judicial  Ruling  or  for  Legislation. 
Outline  of  a  Municipal  General  Ledger. 
New  York  City's  Debt:   Facts  and  Law. 
To  Mayors,  Comptrollers  and  Auditors;    Scientific  Accounting 

Methods. 
What  Should  New  York's  Next  Comptroller  Do? 

Health. 

Division  of  Child  Hygiene,  New  York  City. 

Efficiency  and  Next  Needs  of  St.  Paul's  Health  Department. 

Health  and  Education,  Atlanta,  Ga. 

Health  and  Education,  Syracuse,  N.  Y. 

Health  Needs  and  Civic  Action. 

Health  Violations  in  East  Side  Slaughter  Houses. 

Organization  and  Administration  of  the  Department  of  Health, 

Dayton,  Ohio. 
Sanitary  Survey  of  Hoboken,  N.  J. 

Parks. 

Park    Question.     Pt.     I:        Administrative    and    Accounting 
Methods.     Pt.  II:   Revenue  and  Deposits. 

Police. 

Business  Methods  of  New  York's  Police  Department. 
Report  of  the  Special  Committee  of  the  Board  of  Aldermen. 

Street  Cleaning. 

Some  Phases  of  the  Work  of  the  Department  of  Street  Cleaning 
of  New  York  City. 

Tenement  Houses. 

Tenement  House  Administration. 


422  Appendix 

Training  for  Public  Service. 

Report  on  Training  School  for  Public  Service.     1911. 
Same.     1912.  . 

Training  Men  and  Women  for  Public  Service. 
Training  School  for  Public  Service. 
Water. 

Collecting  Water  Revenues. 

Public  Watering  Places  for  Manhattan's  Horses. 

General. 

Efficient  Citizenship,  Weekly  Bulletins.     (About  655  issued  to 

date.) 
Municipal  Research.     (Weekly.)      1913-. 
Purposes  and  Methods  of  the  Bureau  of  Municipal  Research. 

New  York  (City)  —  Municipal  Reference  Library-  (Department 

of  Finance). 
Bulletin,  1913. 

July.  1913.     List  of  Books  on  Engineering. 

Sept.,  1913.     List  of  Books  on  Accounting  and  Budget  making. 

.     Municipal     Reference    Library     established     by     Hon. 

William  A.  Prendergast,  Comptroller,  and  dedicated  to  the 
Citv  of  New  York  in  opening  exercises  held  Monday,  Mr.  31, 
1913.     35  p. 

PHlL.\DELPni.-\. 

Bureau  of  Municipal  Research  of  Philadelphia. 

Citizens'  Business  .  .  .   (Weeklv),  1913-. 
See  especially  issue  of  Dec.  11,  1913;  No.  84:  Seven  Years  of  Municipal 
Finance. 

The  weights  and  measures  situation  in  Philadelphia.     Mr.  3, 
1911.     153  p.     Phil.,  1911.     (Report  No.  1.) 

St.   Louis. 

St.  Louis  —  Municipal  Reference  Library. 

Municipal  Regulation  of  Dance  Halls.     1913. 
St.  Louis,  (Mo.)   —  Public  Library. 

Monthly  Bulletin,  n.s.  v.  10,  No.  7,  July,  1912. 
"Municipal  Reference  Number"  containing  a  report  on  Municipal  Lodging 
Houses  in  the  United  States  by  Jesse  Cunningham,     p.  322-48. 

University  of  C.'\liforni.\. 

University  of  California  —  Bureau  of  Municipal  Research. 

Preliminary    announcement    of    the    Bureau    of    Municipal 
Research,  1913-1914.     6  p.     Berkeley,  1913. 

U.NIVERSITY  OF  TEX.^S. 

University   of   Texas  —  Bureau    of    Municipal    Research    and 

Reference. 
A  Model  Charter  of  Texas  Cities.    23  p.     Austin,  Feb.  10.  1914. 
(University  of  Texas  5m//€/im,  "Municipal  Research"   Ser.  No.  1.) 
By  Prof.  Herman  G.  James. 


Appendix  423 

University  of  Washington. 

University   of    Washington  —  University    Extension    Division. 
Bureau  of  Municipal  and  Legislative  Research.    8  p.    Seattle, 
1912. 

University  of  Wisconsin. 

University  of  Wisconsin  —  Extension  Division. 

Municipal  Reference  Bureau.     8  p.     Madison,  1909.     (Univ. 
of  Wis.  Bulletin.     Serial  no.  320:    General  Series.     No.  186.) 


MUNICIPAL  REFERENCE  LIBRARIES  AND  RE- 
SEARCH BUREAUS:   A  BIBLIOGRAPHY. 

(A  few  of  the  more  important  titles  are  starred.  [*]) 

Bibliographies. 
Flack,  Horace  E. 

Bibliography  of  Legislative  Reference  Work,  State  and  Munici- 
pal. (In  his  "Municipal  Reference  Libraries,"  Proceedings  of 
the  Nat'l.  Conf.  for  Good  City  Gov't,  Buffalo,  1910;  v.  18: 
457-59.) 

Also  reprinted  as  a  separate  8  p.,  and  republished  in  Spec.  Libs.  March- 
1911.  p.  2. 

Meyer,  H.  H.  B. 

Select    List    of    References    on    Special    Libraries.     (In    Spec. 
Libs.   3:    172-76,    Oct.,  1912.     "Legislative  Reference,"  including 
Municipal  Reference  Libraries,  p.  174-76.) 
Watts,  Irma  A. 

List  of  articles  on  Municipal  Reference  Work.  (In  Pub.  Libs. 
17:  164.  May,  1912.) 

General  and  Descriptive. 
Aldermen  learning  Value  of  a  Library.     {Wis.  L.  Bui.  4:  1 12.) 
Allen,  William  H. 

How  mav  the   Public   Library  help   City   Government?     (In 
Pub.  Libs.  '17:   160-61,   May,   1912;    also  in  Lib.  J.  37:  186-87, 
Apl.,  1912.) 
*  Baltimore  —  Department  of  Legislative  Reference. 
Annual  Report,  1907-.     Baltimore,  1908-. 

.     New     Department    of     Legislative     Reference,     Baltimore; 

remarks  at  a  round  table  Feb.  26,   1907,  by  Theodore  Marburg 
and  others.     43  p.     Baltimore,  1907. 
Baltimore's  New  Reference  Department.     (In  Public  Service  Sept., 

1907.) 
Bostvvick,  Andrew  Linn. 

Relation  between  the  Municipal  Library  and  the  Legislator. 
{In  Spec.  Libs.  4:  163-65,  Sept.-Oct.,  1913.) 

Emphasizes  the  part  played  by  the  personality  of  the  librarian. 


424  Appendix 

BrigK^.  W.  B. 

Public   Librar>'  and   the   City  Government;    or,  what    Public 
Libraries  should  do  for  Municipal  Departments  and  Officials. 
(Liby.  Jour.  33:  385-90,  Oct. '08;  also  separate.     5  p.) 
Campbell,  R.  A. 

Legislative    and     .Municipal     Reference     Department.     (News 
and  notes  of  California  libraries.     Oct.,  1910,  p.  534.) 
•Cecraft,  Earl  \V. 

The  Municipal  Reference  Library  (in  Nal.  Mun.  Rev.  4:  644-53, 
Oct..  1913.) 

A  thorough  study  of  the  origin  and  development  of  the  municipal  reference 
library  as  distinguished  from  the  municipal  research  bureau  and  the  bureau  of 
municipal  statistics;  printed  in  the  Revirw  in  place  of  any  report  from  the 
National  Municipal  League's  committee  on  Municipal  Reference  Libraries  and 
.Archives  for  this  year. 

Chicago  —  Bureau  of  Statistics  and  Municipal  Library-. 

Catalogue  of  the   Chicago   Municipal   Library,    149   p.     1908. 
(The)  Danger  in  the  Movement  for  the  Establishment  of  Legisla- 
tive and  municipal  Reference  Departments.  {In  Spec. Libs.  v.  2:33. 
April,  1911.) 
Darlow,  G. 

Municipal  Section  of  a  Public  Library'. 
{Pub.  Libs.  V.  13;   4-6,  Jan.,  1908.) 
Dudgeon,  M.  S.  t 

The  Scope  and  Purpose  of  Special  Libraries.     (In  Spec.  Libs, 
3:  129-33.     June,  1912.) 
Flack,  H.  E. 

Department  of  Legislative  Reference  in  Baltimore. 
{Municipal Engineering,  Sept.,  1908,  7  p.) 

• .     Importance   of    ^Iunicipal    Reference    Libraries.       (Nat'l. 

Municipal  League.     Proceedings  of  the  Pittsburg  Conference  for 
Good  City  Government.     1908.     p.  308-16;  also  separate,  9  p.) 

.     Municipal    Reference    Librarian.      {Municipal  Journal   and 

Engineer,  v.  30.  p.  82-84.)     Jan.  18,  1911. 

* .     Municipal  Reference  Libraries.     (Nat.  Mun.  League  Conf. 

for  Good  City  Government.     BufTalo,  1910.     v.  18,  p.  452-59.) 

"Bibliography  Legislative  Reference  Work.  Stateand  Municipal."  p.457- 
.")9.     .Also  published  separately,  8  p. 

.     .      Nat.  Mun.  Rev.  3:  223-23,  Jan.  1914. 

• .     Municipal  Reference  Libraries  and  Archives.      {L.J.  Feb., 

1912,   p.   87-88,   also   in    NatU.  Mun.   Rev.    Jan.,  1912,  apx.  p. 

13-15.) 
.     Present  Status  of  Municipal  Reference  Work.     {Spec.  Libs. 

V.  2:  p.  110-11,  Dec,  1911.) 

(Aj  General  Municipal  Reference  Bureau.     {Nat.   Mun.   Rev. 

2:  143-44,  Jan..  1913.) 

People's  Institute,  Xew  York  City. 

Greene,  Charles  S. 

Municipal  Reference  Library  Movement  in  the  United  States 
and  especially  in  Oakland,  California.  {Pacific  Municipalities, 
Oct.,  1912.     p.  461-67.) 


Appendix  425 

Hadley,  Chalmers. 

J^unicipal  Reference  Work.     {Pub.  Lib.  v.  12,  p.  232-4,  June, 

Haines,  Charles  G. 

A  Municipal  Reference  Library  (in  League  of  Pacific  Northwest 
Municipalities  Proceedings  1:  43-52,  Oct.    1912 
Hall,  E.  ' 

Plea  for  a  Municipal  Reference  Library.     Survey  28:  770-71. 
Hibben,  Paxton. 

A  T^^imo°f''^^^'^^  Municipal  Service.     (In  Nat.  Mun.  Rev.  2:  318 
Api.,  lyio.)  ' 

Hoholl,  Mrs.  A.  W.  von. 

A  Trf  ^"c'''P'''^^^^''f^i'H  Library  in  New  York.    (In  Spec.  Libs. 
4.  Ibl-b2,  Sept.-Oct.,  1913.) 

A  brief  account  of  its  first  three  months' work 
Holsworth,  J.  T. 

Municipal  Reference  Library.     (In  his  Report  of  the  Economic 
Survey  of  Pittsburgh,  1912,  p.  226-9.) 
Kaiser,  John  B. 

'?nn"'^'^^'  Reference  Libraries.  (In  the  Nation,  Feb.  1,  1912 
p.  lUy.     Reprinted  in  the  New  York  Evening  Post,  Feb   8    1912  ) 

-—.  The  Special  Library  and  the  Library  School;  a  Suggested 
Outline  of  a  Library  School  Course  in  Law,  Legislative  and  Muni- 
cipal  Reference  Libraries.     (L.  J.     Apr.,  1912,  p.  175-79  ) 

Lapp,  John  A.  '^ 

Municipal  Reference.     {Indianapolis  News,  Oct.  14.  1909  n  6  ) 
*Legler,  Henry  E.  .  ,  h-    .y 

How   the   Chicago   Public   Library   is   being   developed   in   its 
Industrial  and   Civic   Resources.     {Chicago  Commerce,   April  26, 
A  y  1  ^ ,  p ,  Zo — Zt . ) 
Lighthall,  W.  D. 

^S  International  Municipal  Bureau.  {Nat.  Mun.  Rev.  v  1 
p.  78-79,  Jan.,  1912.) 

inlmfricSSsewte.'''"'"""''""'^'^^^^^  "^"°-'   -  -°P-- 

Lindholm,  Mari  Fay. 

A  Review  of  Chief  Sources  of  Material  for  Special  Library 
Collections.     (In  Spec.  Libs.  4:  139-46,  Sept.-Oct.,  1913  ) 

Includes  2.  General  reference  foundation.  3.  Chief  reference  sources  for  a 
"i^unirlZr^f  ^°'"")!f'°'^  or  corporation  library.  4.  A  financia fubrary  5 
f'i^^f^Paireference  library  6.  Current  books  and  special  reports.  7.  Period- 
n.nt"  .h  government  and  state  reports.  9.  Society  publications.  10.  Com- 
?o^/"'^  ^""^de  publications.  11.  Legislation.  Legal  decisions  and  briefs 
of  thYsType"'^aiialle^.'"^'  "=°^'^^'  ^'"^-''""^^-  ^^^'^     ^ne  of  tV  best'  ardcfis 

*McAneny,  George. 

The  Municipal  Reference  Library  as  an  Aid  in  City  Administra- 
tion.    {Liby.  Jr.  38:  509-13,  Sept.,  1913.) 

*MacGregor,  Ford  H. 

o^J^of  Wisconsin  is  doing  for  its  Cities.      (In  Nat.  Mun.  Rev.l: 
078-85,  July,  1912.) 


420  Appendix 

•McCarthy,  Charles. 

City  Library  as  a  Business  Investment.      {A.  L.  A.  Bui.  v.  2, 
p.  190-96.     Sept.,  1908.) 

.\lso  in  Natl.  Mun.  League  Conference  for  Good  City  Government,  Pitts- 
burfih.  1008.     p.  317-27. 
Merchants  Association  of  New  \  ork. 

List  of  the  Business  or  Commercial,  Civic,  Board  of   Trade, 
Municipal,   Legislative  Reference  Libraries,  and   Departments  of 
Public  and  other  Libraries  Devoted  to  these  Topics.     2  p.     1909. 
Mcrriam,  Charles  E.  and  Milton,  J.  F. 

Proposed  Department  of  Information  and  Publicity. 
(Chic.  City  Qub Bullethi,  v.  2:  165-70,  Jul.  8,  1908.) 
Mever,  E.  C.  ,^  .        . 

'  Helping  Cities  to   help  themselves;    how  the  State  University 
through  its  Extension  Division  is  placing  the  practical  Assistance 
of  Experts  at  the  Disposal  of  Wisconsin  Cities.      (In  LaFollette's, 
Sept.  25.  1909.  p.  8-9.) 
•Mitchell,  Dubois. 

Municipal    Reference   Work.     (In    Pacific    Northwest    Library 
Association  Proceedings,  June  12-14,  1913;   p.  47-54.) 
Mowry,  D.  E. 

Municipal   Reference  Libraries.      (In  City   Hall,  v.   10,   No.  4, 
Oct. ,1908.     131-33.) 

Reference  Libraries  in  Cities  —  Baltimore  as  a  Type.      {Pub. 

Lib.  V.  12,  p.  387-91.  Dec,  1907.) 
Municipal  Legislative  Reference  work  in  Baltimore.     {Dial,  May  7, 

1907,  p.  277.) 
Municipal  Reference  Bureau.     {Amer.  Municipalities,  Apr.,  1907.) 
Municipal   Reference  Department.      (Oakland  Free  Library  Thirty- 
fourth  Atinual  Report,  1911-12,  p.  12-16.) 
Municipal    Reference    Libraries.       {Mun.  Jr.    and  Eng.,  Nov.    13, 

1907.) 
Municipal  Reference  Libraries  (an  editorial).      (In  I  nited  Improve- 
ment Association  5M//e/zn,  May  1,  1912,  p.  12-13.) 
Municipal  Reference  Libraries.     {\n  Spec.  Libs.  Mar.,  1911,  p.  1-2.) 
Part  of  H.  E.  Flacks  1910  report  to  the  Nat.  Mun.  League,  followed  by  a 
bibliography  of  2.5  references. 
Municipal  Reference  Libraries.     (In  Survey,  v.  26,  p.  8/2-73,  Sept., 

23,  1911.     Also  in  Pub.  Lib.  v.  16:  377-78,  Nov.,  1911. 
•.Municipal  Reference  Library-:  City  of  New  York.     35  p.     (1913). 

Speeches  at  the  opening  exercises,  March  31.  1913. 
Municipal  Reference  Library  in  Milwaukee.     {Milwaukee  Sentinel, 

Dec.  14,  1907;   also  in  Wis.  Liby.  Bui.  v.  4,  p.  18,  Jan.,  1908.) 
Munro,  William  Bennett. 

Government  of  American  cities,  p.  376-77.     N.  V.     Macmillan, 
1912. 
•Ranck,  S.  H. 

Municipal  Legislative  Reference  Libraries;  should  they  be  estab- 
lished and  maintained  as  a  part  of  the  Public  Libran.-  of  a  City  or 
as  an  independent  Department  or  Organization?  {Lib.  J.  v.  34, 
p.  345-50,  Aug.,  1909.     Also  separately.  6  p.) 


Appendix  427 

.     Municipal  Reference  Libraries.    {Mun.  Jr.  andEngr.,  Jan.  18, 

♦ .     The  Public  Library  as  a  Factor  in  Civic  Betterment.     (Nat  I. 

Mun.  L.  Conf.  for  good  city  gov't.,  Buffalo,  1910.     v.  18,  p.  385- 

94). 

Public  Library  as  a  part  of  Municipal  Government.     {Pub. 

Lib.  V.  12,  p.  386-87,  Dec,  1907;  also  in  L.  J.  v.  32,  p.  432-33.) 

Rex,  Frederic.  -^  ,  ,.  .  /  ,r        ,^ 

Chicago's  Bureau  of  Information  and  Pubhcity.  {^at.  Mun. 
Rev.  1:740-41,  Oct.,  1912.) 

.     Municipal  Library.     {Education,  bi-monthly,  v.  4,  p.  286-89, 

Apr.,  1910.) 

.     Sources  of  Municipal  Information.     {Spec.  Lib^.  Dec,  1910, 

p.  75-76.) 
Robinson,  J.  N.  i  o        c-  - 

The  German  Stadtetag.     {Ann.  Amer.  Acad,  of  Pol.  &  Soc.  bci. 
V.  31,  p.  703-06,  May,  1908.) 
Saint  Louis  —  Public  Library. 

Annual  Report.     1912.     p.  27,  111-13. 
Southern,  T.  W.  ^^  .^       ^ 

Municipal    Libraries     and    their    Development.     {Lib.     Assoc. 
Record.     Oct.,  1899,  v.  1,  p.  607-18.) 
Taggert,  Frederick  T. 

Value  of  Municipal  Libraries.    {California  Municipahhes,  Mar., 
1900,  V.  2:  p.  52-3,  discussion,  p.  54-5.) 
♦Talbot,  Charles  H. 

The  Functions  of  a  Municipal  Reference  Department.  (In 
League  of  Kansas  Municipalities:  Proceedings,  v.  3.  p.  52-57. 
1911.)     See  also  City  Hall,  22:   184-87. 

* .     Municipal   Reference   Library  as  a    Business    Investment. 

Kansas  City,  Mo.     8  p.     1912. 
Thvvaites,  Reuben  Gold. 

Relations  between  the  State  and  Municipal  libraries.     (Amer. 
Lib.  Assoc.  Bulletin,  v.  2:  285-90,  Sept.,  1908.) 
Tiefenthaler,  Leo.  .  ,-,      r>   , 

Municipal  Reference  Library  and  Municipal  work.     (In  Pub. 
Lib.,  V.  18:  p.  162-63,  May,  1912.) 
Whitten,  Robert  H. 

Proposed  Library  of  Municipal  Affairs  and  City  Department 
libraries.     (L.  /.  v.  33,  p.  224-26,  June,  1908.) 

.     Special  Libraries.     (L.  /.  v.  31,  p.  12-14),  Jan.,  1906. 

Wisconsin  Free  Library-  Commission. 

Municipal  Reference  Libraries.  (In  its  Circular  of  Information. 
No.  6,  p.  24-26.     Ed.  1.  Jan.,  1908.) 

.     .     p.  24-25.     Ed.  2.     Jan.,  1911. 

Woodruff,  C.  R.  ^     ^.  ,,       r       r 

Municipal  Reference  Libraries  and  Archives.  (In  L.  J. 
V.  36,  p.  578-79;  also  in  Pub.  Libs.  v.  15,  p.  377.) 

* .     Sources  of  Municipal  Material  with  Reference  to  a  Clearing 

House  of  Information.     {Spec.  Libs.  Dec,  1911.     p.  112-114.) 


428  Appendix 

LiBR-ARY  Technique. 

The  following  articles  on  the  technical  side  of  special  library  work 

are  of  value  in  this  connection  although  the  work  is  not  in  all  cases 

municipal  reference. 

•Clcland.  Ethel.  ^  .i       o>.        r  i. 

Indiana    Legislative    Reference    Department.     (In   ^pec.  Libs. 

Oct.,  1910,  p.  oS-60.) 

Considers  the  technical  library  details  and  is  followed  by  a  bibliography  of 
legislative  reference  work,  20  items. 

•Imhofif,  One  Mar>'.  /t     c^      r  •;,    c     * 

Cataloging  in  Legislative  Reference  U ork.     {\nbpec. Libs,  bept., 
1012.  149-54,  also  in  A.  L.  A.  Proceedings,  1912,  p.  238-45. 

Johnston.  R.  H.  ^  ■  ,-,      c-  t  u 

Library-  of  the  Bureau  of  Railway  Economics.     (In  ^pec.  Libs. 

V.  3:  p.  1-4),  Ja.,  1912. 

Especially  valuable  as  showing  the  methoas  adopted  in  a  special   library 
recently  established. 

Lee,  G.  W. 

Library    of    Stone    and    Webster.     {Spec.   Libs.,    June,     1910, 

V.  1:44^6.) 
•Wallis,  Marv  S.  .      t.  ,  r,  ,  • 

Librarv  Side  of  the  Department  of  Legislative  Reference,  Balti- 
more. {Spec.  Libs.,  Dec,  1910,  v.  1:  p.  73-75.) 

This  library  does  both  legislative  and  municipal  reference  work. 

Whitten,  Robert  H.  r  xt       i-    ■ 

The  Librarv  of  the  Public  Service  Commission  of  New  York, 
First  District.'     {In  Spec. Libs.  1:  18-20,  Mr.,  1910.) 

QUALIFICATIONS  OF   THE   LIBRARIAN. 

Bostwick,  Andrew  Linn. 

Relation   between  the  Municipal   Library'  and  the   Legislator. 
(In  Spec.  Libs.  4:  163-65,  Sept.-Oct.,  1913.) 
Dudgeon,  M.  S. 

Qualifications  of  Legislative  and   Municipal   Reference   Libra- 
rians.    (In  Spec.  Libs.  2:  114-15,  Dec,  1911.) 

.     Scope  and  Purposes  of  the  Special  Library.    {In  Spec. Libs.  3: 

129-32,  June,  1912;  especially  p.  131-32.) 
U.  S. — Librarv-,  Senate  Committee  on. 

Legislative  Drafting  Bureau  and   Reference  Division.     145  p. 
Wash.,  1913.     (62d  Cong.  3d  Sess.  Sen.  Doc.  1271.) 

See  especially  testimony  on  p.  107,  114-115.  122.  128.  by  Dr.  McCarthy. 
Speaker  Claik.  Mr.  Mann,  Mr.  Beaman  and  Mr.  McKirdy. 

ORDINANCES  AND   LAWS. 

B.\LTIMORE. 

Marsland  —  Legislature. 

Laws  of  Maryland.  1906.  Chap.  565.  (Reprinted  in  Balti- 
more Department  of  Legislative  Reference  Annual  Report.  1907. 
p.  16-17.) 

An  amendment  to  the  Baltimore  city  charter. 


Appendix  429 

Chicago. 

Chicago  Code  1911.     p.  761.     Sees.  2380-2382. 

The    ordinance    creating  the  Bureaus  of  Statistics;    repealed   by   the    next 
ordinance. 

Chicago  —  City  Council. 

An  Ordinance  creating  the  Bureau  of  Information  and  Pub- 
licity.    Passed  Jan.  22,  1912. 

.     An  order  to  place   the   Municipal   Reference  Library  in 

charge  of  the  Chicago  Public  Library.     March  31,  1913. 

Cincinnati. 

Cincinnati  —  City  Council. 

An  ordinance  authorizing  the  University  of  Cincinnati  to  use  a 
portion  of  city  hall  for  Municipal  Reference  Bureau  and  prescrib- 
ing conditions  of  such  use.     No.  631:  1912. 

Kansas  City,  Mo. 

Kansas  City  —  Common  Council. 

An  ordinance  to  create  a  Municipal  Reference  Library.  An- 
proved  Aug.  19,  1910. 

Sec.  8,  p.  411,  infra,  appears  as  amended  the  following  year. 

Milwaukee. 

Milwaukee  —  Common  Council. 

An  ordinance  to  create  a  M  unicipal  Reference  Library.  Passed 
Feb.  3,  1908,  as  amended  Jan.  3,  1911. 

.     An  Ordinance  creating  the    Bureau    of   Municipal    Re- 
search.    Passed  Sept.  20,  1912. 
St.  Louis. 

St.  Louis  —  City  Council. 

Resolution  requesting  the  Public  Library  to  establish  a  Muni- 
cipal Reference  Branch.     Jan.  27,  1911. 

STATE   UNIVERSITY   BUREAUS. 
Library  of  Municipal  Documents  at  the  University  of  Minnesota. 

{Lib.  J.  V.  37,  p.  566,  Oct.,  1912.) 
*MacGregor,  Ford  H. 

Municipal   Reference   Bureau.     (The   Municipality   12:  52-56 
Sept.,  1911.)  ' 

.     Municipal  Reference  Work  of  Wisconsin.    (Amer.  City  Feh 

1910,  p.  65-8.)  ' 

Price,  R.  T. 

Municipal  Reference  Bureau  (League  of  Kansas  Municipalities 
Proceedings,  v.  3,  1911,  p.  17-18.) 

♦University  of  California  —  Bureau  of  Municipal  Research. 

Preliminary' Announcement  ofthe  Bureau  of  Municipal  Research 
1913-1914.     6  p.     Berkeley,  1913. 

♦University  of  Washington,  Seattle.     Extension  Division  —  Muni- 
cipal Research  Bureau. 
Circular,  1912. 


430  Appendix 

•University  of  Wisconsin.  —  Extension  Division. 

Municipal  Reference  Bureau.       (Univ.  of  Wis.  Bulletin,  serial 
No.  320,  gen.  ser.  186.     8  p.     Sept.,  1909.) 

BUREAUS  OF  STATISTICS  AND  MUNICIPAL  RESEARCH. 

Allen.  William. 

Municipal  Bureau  of  Statistics  (and)  Brief  for  Establishment  of 
an  Institution  for  Municipal  Research.    (In  his  Efficient  Democracy, 
N.  V.     Dodd,  1907;  Chap.  12  and  14.) 
•Bureau  of  Municipal  Research,  New  York. 

Si.\  Years  of  Municipal  Research  for  New  York  City,  Record  for 
1906-11.     80  p.     1912. 
•Bureaus  of   Municipal    Research.     {Ann.  of  the  Amer.  Acad,  of 

Pol.  &  Soc.  Science,  May,  1912.     p.  235-78.) 
•Cerf,  Myrtle. 

Bureaus  of  Public  Efficiency.     (June,  1913.      Nat.   Mun.   Rev. 
V.  2:  39-47.) 
•Cleveland,  Frederick  A. 

An   Agency   of   Citizen    Inquiry  —  the    Bureau    of    Municipal 
Research.     (In   his   Chapters  on    Municipal    Administration    and 
Accounting,     p.  346-61.     N.  Y.    Longmans,  1909.) 
Connelly,  James  J. 

Newark's   Bureau  of  Statistical   Information.     {In   Municipal 
Economist  1:  14-17,  Jan.,  1909.) 
Efficiency  Bureau  of  San  Francisco.     {Nat.  Mun.  Rev.  2:  156,  Jan., 

1913.)' 
Halbert,  L.  A. 

Board  of  Public  Welfare  of  Kansas  City.     {Nat.  Mun.  Rei'.  1: 
417-20,  July,  1912.) 
Harvard    Bureau   of   Research.     (In    Nat.    Mun.    Rev.    1:   307-08, 

April,  1912.) 
•Milwaukee-Bureau  of  Economy  and  Efficiency. 
Eighteen  Months  Work.     1912.      (Bulletin  19.) 
Reprinted  with  additional  comment  in  John   R.  Commons'  Labor  and  .Id- 
minstralion.  1913,  p.  195-218. 

Newark's    Bureau    of   Statistical    Information.     {City    Hall,   Sept., 

1908,  2  p.) 
Newark — Common  Council. 

Bureau  of  Statistical  Information.     (In  its  Manual,  1913,   p. 
120-21.) 
St.  Louis  —  Civic  League.     Committee  on  Municipal  Finance  and 
Taxation. 

Work  of  a  Municipal  Efficiency  Bureau.     8  p.     1911. 
•Sait,  Edward  M. 

Research  and  Reference  Bureaus.    ( Nat.  Mun.  Rev.  p.  2:  50-56), 
Jan.,  1913. 
•Sikc's,  (^orge  C. 

Chicago  Bureau  of  Public  Efficiency.      {Nat.  Mun.  Rev.  1:  455- 
.57.) 


Appendix  431 

♦Silbergleit,  H. 

Das   Statistische   Amt   der   Stadt    Berlin,    1862-1912.     81    p. 
Berlin,  1912. 

Description  of  the  Library,  p.  62-68. 
Treleven,  John  E.,  and  Meyers,  P.  H. 

Milwaukee  Bureau  of  Economy  and  Efficiency.     (In  Nat.  Mun. 
Rev.  1 :  420-25,  July,  1812.) 

5.     SUGGESTED  CLASS  PROBLEMS  IN  MUNICIPAL  REFER- 
ENCE  WORK. 

University  of  Illinois  Library  School. 

Municipal  Reference  Work:  Problems. 

I. 

1.  Find  two  good  lists  of  periodical  publications  dealing  with 
municipal  affairs. 

2.  What  periodical  is  the  organ  of  the  Iowa,  Nebraska  and 
Kansas  Leagues  of  Municipalities?  Under  what  several  titles  has 
it  been  published? 

3.  Find  a  good  discussion  of  the  question  "The  relation  between 
the  city  and  the  state." 

4.  How  many  members  were  there  in  the  city  council  of  Phila- 
delphia in  1906,  and  what  was  the  salary  of  each? 

5.  Find  a  collection  of  city  charter  provisions  on  the  question 
of  the  right  to  a  referendum  on  specific  city  ordinances. 

6.  What  is  meant  by  the  "Municipal  Control  of  Public  Utilities?" 
Find  4  references  on  this  subject. 

II. 

1.  Write  out  a  brief  comparison  between  the  collected  docu- 
ments of  Bangor,  Me.,  Cambridge,  Mass.,  (1910-1911),  Boston, 
1909,  and  Cleveland,  Ohio,  1910.  Bring  out  the  points  of  likeness 
and  difference,  good  features  and  bad  features,  and  recommend 
improvements  in  the  form  of  publishing. 

2.  Write  out  a  brief  statement  showing  the  kind  of  data  found  in 
a  city  auditor's  report,  a  city  treasurer's  report,  and  a  city  council 
manual. 

(Make  a  general  survey  of  the  kind  of  material  shelved  in  rooms 
411  and  415  Lincoln  Hall,  the  Municipal  Research  Bureau.) 

III. 

1.  Name  two  sources  for  keeping  up  on  current  municipal  legis- 
lation. 

2.  Find  three  good  discussions  of  city  charters  or  charter-making. 

3.  Where  are  current  municipal  documents  noted?  Where 
reviewed? 

4.  Since  1903  what  issues  of  the  Annals  of  the  American  Academy 
of  Political  and  Social  Science  have  dealt  exclusively  with  municipal 
problems? 


432  Appendix 

5.  Name  five  good,  fairly  recent  bibliographies  or  lists  of  books 
on  municipal  affairs  in  general.  ... 

6.  Name  five  lists  of  books  on  special  phases  of  municipal  govern- 
ment or  on  some  phases  of  municipal  activity. 

IV. 

1.  A  city  not  having  the  recall  privilege  wishes  to  remove  a 
certain  local  officer.  Name  a  good  authority  for  explaining  the 
proper  procedure. 

2.  A  local  council  member  of  a  village  in  Michigan  writes  asking 
whether  his  council  can  contract  for  the  construction  of  a  water  works 
simply  by  a  resolution  of  the  council  or  is  an  ordinance  necessary. 
What  would  you  advise? 

3.  A  certain  town  abolishes  the  public  drinking  cup  by  rule 
of  the  local  board  of  health.  "A"  disregards  the  rule  and  is  arrested. 
He  pleads  that  it  was  not  illegal  to  have  such  a  cup  because  it  was 
prohibited  only  by  a  rule  of  the  local  board  of  health  and  not  by 
statute  or  ordinance.     Is  he  right? 

4.  Is  an  "enacting  clause"  essential  to  the  validity  of  an  ordi- 
nance? 

5.  A  municipal  efficiency  commission  wishes  to  inspect  the  records 
of  a  city  department  which  refuses  it  permission.  Has  it  the  right 
to  insist.     Where  is  your  answer  found? 

Optional  Problem. 
1.     Write  a  reply  to  the  following  letter  assuming  that  you  are 
the  librarian  to  whom  it  was  sent. 
Librarian, 

Cleveland,  Ohio. 
Dear  Sir: 

I  understand  that  many  of  our  large  cities  are  receiving  valuable 
assistance  from  so-called  municipal  reference  libraries.  I  should 
be  glad  to  have  you  let  me  know  something  of  the  work  of  these 
institutions  and  what  is  your  opinion  on  the  question  of  establishing 
one  here. 

Should  such  an  institution  be  under  the  control  of  the  public 
library?  Where  should  it  be  located?  What  qualifications  are 
needed  in  the  executive  head  of  such  a  library  and  how  should  he 
be  selected?  Have  any  other  cities  ordinances  on  this  subject  that 
you  would  suggest  as  models  for  us  to  follow? 

Very  truly  yours, 

Mayor.. 

Suggested  Additional  Questions. 

1.  Find  arguments  for  and  against  a  bi-cameral  municipal  council. 

2.  What  are  the  exact  meanings  of  the  following  terms  applied 
tij  municipal  legislation?  —  "Ordinances";  "Regulations";  "Reso- 
lutions"; "Orders." 


Appendix  433 

3.  Cities  cannot  pass  ordinances  putting  an  unreasonable 
restraint  on  business.  Where  would  you  find  out  whether  a  proposed 
ordinance  was  an  "unreasonable  restraint?" 

4.  What  is  the  difference  between  "Public  Utilities"  and  "Public 
Works?" 

5.  How  would  you  assist  a  council  member  attempting  to  fix 
by  ordinance  a  reasonable  taxi-cab  rate? 

7.  What  is  the  difference  between  municipal  law  and  municipal 
corporation  law? 


INDEX. 

EXPLANATION. 

The  following  pages  provide  a  detailed  index  in  one  alphabet  to 
all  subjects  discussed  in  the  text  and  appendix,  to  all  names  of 
authors  both  personal  and  institutional,  in  whatever  connection 
mentioned  —  whether  quoted  from,  cited  as  authority,  merely  men- 
tioned by  way  of  illustration,  or  given  with  a  fully  annotated  title  — 
to  all  periodicals  cited  whether  simply  mentioned  or  fully  described, 
and  in  many  cases  where  the  importance  seemed  to  warrant  it,  sub- 
ject and  title  entries  appear  in  the  index  in  addition  to  author  entries 
for  publications  cited  in  the  text  as  illustrative  only. 

The  index  does  not  contain  references  to  individual  authors  listed 
in  the  appendix  bibliographies.  These  can  easily  be  found  as  the 
entries  are  arranged  alphabetically  by  authors. 

Subheads  are  arranged  in  the  index  alphabetically  in  indented 
paragraphs.  The  initial  word  of  the  paragraph  is  not  repeated  and 
no  dash  is  used  to  note  its  omission.  Abbreviations  are  arranged  as 
if  written  out  in  full  except  where  the  abbreviation  occurs  in  the 
original  title  of  a  publication;  i.e.  A.L.  A.  Booklist.  United  States 
government  departments,  bureaus,  etc.,  are  indexed  under  the 
specific  name  omitting  the  "United  States";  e.g.  Education  Bureau. 

Special  attention  is  called  to  the  fact  that  all  bibliographies  men- 
tioned, described,  or  presented  in  the  text  and  appendix  are  listed 
alphabetically  by  subject  in  this  index  under  the  word  "Bibliog- 
raphies." The  bibliographies  published  by  the  Library  of  Congress 
in  the  fields  of  Economics  and  Political  Science  are  included.  All 
compilations  of  laws  mentioned  or  given  are  found  listed  alpha- 
betically under  the  heading  "Laws,  Compilations  of";  compilations 
of  ordinances  under,  "Ordinances,  Compilations  of." 

It  is  believed  that  most  of  the  abbreviations  used  in  the  index 
are  self-interpretive.     A  few  are  explained  below. 

aflf affairs      des described  in  the  text 

art article  cited       docs documents 

bd bound       efi efficiency 

bib bibliography       fed federal 

com commission       fin finance 

comm committee       for foreign 

commr commissioner       H Hcuse 

conf conference       L.  C Library  of  Congress 

const constitution    or  legis.     .  .legislative  or  legislation 

constitutional  legis.  ref.  wk legislative 

conv convention  reference   work 

def definition  given       lib library 


430 


Index 


min minimum 

Mo.  Cat. .  .  Motilhly  Catalogue  of 
the  Superintendent  of  Docu- 
ments 

mun municipal 

n note  (footnote) 

nat national 

N.  V.  S.  L.  S. .  .  New  York  State 
Library  School 

proc proceedings 

ref reference 

res research 

References  are  to  pages  in  all  cases;  none  to  section  numbers. 
References  to  footnotes  are  indicated  thus:  217n;  referring  to  note 
on  p.  217  and  not  to  note  217. 


rev review 

rpt report 

rptr reporter 

S Senate 

Sen Senate 

sess session 

St State 

U.  S.  Cat.  .  United  States  Cata- 
log of  Books  in  Print.  .... 

univ university  of 

wk work 


INDEX. 


A. L.  A. Booklist,  146;  (des),  164; 
docs,  in,  113;  Catalogue  1904, 
61,  92,  309;  1904-1911,  61, 
309;  Index,  167;  Manual  of 
Library  Economy,  45n,  189n; 
Subject-headings,  53. 

Abbot,  H.  S.,  291. 

Abbreviations,  legal;  where  in- 
terpreted, .59-60. 

Academv  of  Mun.  Admin.,  Diis- 
bcidorf,  261,  26 In. 

Adams,  E.  D.,  54n. 

Administrative  Law,  15n. 

Agricultural  Co-operation,  doc. 
on,  121;  Europe  (des),  97;  Ag. 
Credit,  Europe,  doc.  on,  97; 
Germany  (des),  97;  Ag.  Educ. 
in  secondary'  schools,  106;  In- 
struction in  High  Schools,  106; 
in  secondary  schools,  106. 

Agriculture,  Department,  271; 
laws,  153. 

Aiyar,  1.50. 

Alabama,  Legis.  ref.  in,  76;  Law, 
347. 

Alameda  County  Tax  .Assn. 
26  In. 


Albany  Citizen,  304;  Mun.  ref. 
in,  251. 

Albrecht,  Adalbert,  64. 

Algeria,  mun.  fin.,  296. 

Allegheny  County  Law  Liby., 
54n. 

Allen,  William  Harvey,  256,  288, 
337n. 

Allgemeine  Bibliographic  der 
Staats-  und  Rechtswissen- 
schaften,  39. 

Allied  real  estate  interests,  N.  Y. 
305. 

Amcr.  Acad,  of  Pol.  &  Soc. 
Science  .4 n?m/5, 299;  (des),  165; 
Index,  168. 

Amer.  andEng.  Ann.  Cases  (des), 
18;  Cyc.  of  Law,  Ed.  2,  59; 
(des),  30;  Railroad  Cases,  X. 
S.,  18;  Annotated  Cases  (des), 
18;  Assn.  for  Labor  Legisla- 
tion, 153,  198;  of  Law  Li- 
braries, 37n,  169;  of  Park 
Supts.,  299n;  Ballot  Laws 
(1888-1910),  120;  Bank- 
ruptcy Reports,  1899,  18;  Bar 
Assn.  Comparative  Law  Bur.: 


Index 


437 


Ann.  Bui.  (des),  147-50;  criti- 
cized, 149-50;  objects,  147-48; 
Reports,  156;  Spec.  com.  on 
legis.  drafting,  224;  Casebook 
Series,  19;  Catalogtce  1876-84, 
1890-5,  125;  City,  250,  298, 
322;  City  Bureau,  250,  309; 
Civic  Assn.  Bui.,  300;  Colonial 
Law,  bib.  of,  44;  Common- 
wealth, 80;  Corporation  Cases, 
1868-87,  lOv.,  18;  Decisions 
(des),  18;  Digest:  Century  Ed. 
(des),  22;  Decennial  Ed.  (des), 
22;  Manual,  22n;  system  (des), 
22,  22n. 

Amer.  Econ.  Assn.  Index,  168; 
pubs.,  300; Econ.  Rev. ,128, 144, 
145,  300,  322;  (des),  165;  docs, 
in,  113;  Electrical  Cases,  1872- 
1903,  8v.,  18;  Executive  and 
Executive  Methods,  212n;  Fed- 
eration of  Labor,  207;  Federa- 
tionist,  144. 

Amer.  Gaslight  Journal,  299;  His- 
torical Ass'n.,  44n;  Institute  of 
Criminal  Law  and  Criminol- 
ogy, 61;  Journal,  65,  145,  154; 
Journal  of  International  Law, 
64;  Supp.  87;  Journal  of  Sociol- 
ogy, 300;  (des),  165;  Labor 
legislation  rev.,  201n;  (des), 
153;  Law  Directory,  Martin- 
dale's,  45;  Law  Review,  64,  145; 
Legislatures,  69-72;  Library 
Annual,   143n,   146. 

A.  L.  A.  Comm.  on  Pub.  Docs., 
117;  Amer.  Municipalities,  298 
Negligence  Reports,  1896-,  18; 
Amer.  Political  Science  Ass'n, 
68,  229;  Index,  168;  Proceed- 
ings, 145,  300;  Report  on  bill 
drafting,  225;  Political  Science 
Review,  128,  144,  145,  188, 198. 
229,  274,  300,  322;  (des),  165; 
docs,  in,  113;  indexed,  168; 
Public     Health    Ass'n,    299n. 

Amer.  Public  Library  (Bost- 
wick),  45n;  Amer.  Reports, 
(des)  ,.18;  Amer.  School  of  Cor- 
respondence, 276;  Amer.  Social 


Progress  Series,  141;  State 
Reports  (des),  18;  State  Series, 
141;  Statute  Law,  42;  bibliog- 
raphy, 42;  (Mass.),  41 ;  in  legis. 
ref.  lib,  88;  Amer.  Tobacco 
Company  Case,  decision,  35; 
Amer  Waterworks  Ass'n,  299n. 

Amer.  Year  Book,  295. 

Ames,  John  G.,  Comprehensive 
Index  (des),  110. 

Andronici,  Dr.  Carol,  250. 

Animal  Industry  Bureau,  272n. 

Annals  of  the  Amer.  Acad,  of 
Pol.  and  Soc.  Sci.,  144. 

Annotated  Constitutions,  25. 

Annuaire  de  Legislation  du  Trav- 
ail, Belgian,  116;  de  Legisla- 
tion Franqaise,  151;  Inter*' 
national  de  Legislation  Agricole, 
153. 

Annual  Library  Index,  32,  166, 
320;  (des),  168;  Magazine  Sub- 
ject-Index, 143n,  146,  169. 

"Annual  Poole",  146;  Annual  Re- 
view of  Legislation,  119. 

Annuario  Statistico  delle  Citti 
italiane,  296. 

Anti-trust  decisions,  35,  36n. 

Anuario  de  Legis.  y  Jurisprud. 
Espanolas,  152. 

Appropriations,  legis.  ref.  wk. 
225-27;  Indiana,  173,  184; 
Penn.  185;  table  of,  226;  Wis. 
184;  mun.  ref.  wk.,  341. 

Arbitration  treaties,  26. 

Arizona,  Constitution  of,  82; 
legis.  ref.  proposed,  232;  Univ., 
legis.  ref.  in,  77. 

Arnold,  J.  H.,  9n. 

Arrangement,  see  Shelf-arrange- 
ment. 

"Articles  of  Confederation," 
123. 

Aschaffenburg,  Gustav,  64. 

Ashby,  A.  W.,  133. 

Assn.  of  Amer.  Law  Schools,  61 ; 
of  the  Bar,  N.  Y.  C,  40. 

Atkinson,  C.  R.,  238n. 

Atlanta,  305;  Mun.  res.  in,  252. 

Atlantic  City  Comm.  Gov't.,  302. 


438 


Index 


Atlantic  Monthly,  143;  Reporter, 
16. 

Attorncv-Gencral,  as  bill-drafter, 
360n;'in  S.  C.  372-73;  Opin- 
ions, 34n;  U.  S.  34,  34n; 
Opinions,  20;  Fed.  Anti-Trust 
Dec,  36n. 

Australia,  114;  Bill-drafting  in, 
376-78:  Min.  Wage  law,  202, 
207n;  (Wise;  135. 

Austria,  Mun.  Yearbook,  296. 

Babbitt,   Charles  J.,  43,  43n. 
Bailev.  William  L.,  117. 
Baker,  M.  X..  270n,  29on. 
Baker.  Voorhife  &  Co.,  42. 
Baldwin,  Simeon  E.,  135. 
Baldwin,  William,  H.,  157. 
Baltimore,  324.  327;  Bur.  of  St. 
&  Mun.  Res.  2.52;  Gov't  of, 307; 
Legis.   Ref.   Dept.   Ann.    Rpt, 
241  n;  Legis  Ref.  in,  240,  327n; 
law  403-04;   Pubs.  416;   Mu- 
nicipal   Journal.    312;     Mun. 
Ref.  Appropriation,  340,  341; 
Mun.  Ref.  in,  240,  241,  252. 
Bancroft-Whitney  Co.,  42. 
Banker's  Magazine,  144. 
Banking  Law  Journal,  154. 
Banks  Law  Pub.  Co.,  42. 
Bar  Assn.  Rpts.,  Shelf- Arrange- 
ment, 57. 
Bar     Associations,     indexes     to 

Pubs.,  31,  32. 
Bar,  Ludwig  von,  62. 
Bates,  Frank  G.,  172,  245. 
Beale,  Joseph  Henrv,  291,  332. 
Beaman,  M.  G.,  27n,  53n,  217n. 
Beard,  Charles  A.,  72n,  136,  139, 
167,  259,  264,  275,  290,  304n, 
315. 
Beavers,  Genevieve  W.,  255. 
Beef  Industry  doc,  on,  102. 
Beldon,  Charles  F.  D.,  43. 
Bell,  Thomas  S.,  62. 
Belloc,  Hilaire,  138. 
Beman,  L.  T.,  142. 
Bemis,  Alton  A.,  291. 
Benefit  F"unds,  doc.  on,  107. 
Berkeley,  Mun.  Eff.  in,  252. 


Berlin,  Ger;  M.  Res.  in,  259; 
Statistics  Bur.,  259,  259n,  296, 
303. 

Berliner  S talis tik,  303. 

Bernaldo  de  Quiros,  C,  64. 

Berolzheimer,  Fritz,  63. 

Berry,  W.  J.  C,  49n. 

Bibliographia  Economica  Univer- 
salis (des),  166. 

Bibliographical  Society  of 
America,  37n. 

Bibliographie  der  Sozialwissen- 
schaften,  164. 

Bibliographie  Generale  et  Complete 
des  Livres  de  Droit  et  de  Juris- 
prudence, 37. 

Bibliographies.  American  Colo- 
nial Law,  43^t4;  American 
Statute  Law,  36,  41,  42,  45 
Anglo-Saxon  Interests,  103n 
Arbitration,  Industrial,  103n 
International,  103n;  Bill-draft- 
ing, 164;  Banks  and  Bank- 
ing, 103n;  397-401;  Boycotts, 
103n;  Brookline,  Mass.,  287; 
Brooklvn,  N.  Y.,  283-84; 
Budget,  103n;  Cabinets,  103n; 
Canadian  Statute  Law,  45; 
Capital  Punishment,  103n, 
141;  "Central  Bank",  141; 
Charters,  275,  286,  315,  317; 
Child  Labor,  103n,  142;  Child 
Study,  106;  Child  Welfare, 
318;  Chinese  Immigration, 
103n;  Cigarette  Smoking,  105n; 
City  Planning,  105n,  315, 
318;  Colonization,  103n;  Com- 
merce Court,  105n;  Com- 
mission Government,  103n, 
142,  290-91,  316,  318-19; 
"Compulsory  Arbitration,  In- 
dustrial," 142;  Compulsory 
voting,  105n;  Congressional 
inquiries  into  gov't  Bus.  1789- 
1911,  101;  Conservation,  103n, 
142;  Constitution,  U.  S.,  103; 
Const.  Conv.  Proceeds,  84; 
Constitutions,  foreign;  (Dar- 
este)  86,  87;  (Dodd)  85;  Con- 
suls, 103n;  Corrupt  Practices, 


Index 


439 


Elections,  103n;  Cost  of 
Living,  103n;  Criminal  Law 
and  Criminology,  162;  Crim- 
inology, 98;  Currency,  103n; 
Current  books,  187-88;  Cur- 
rent, where  listed,  166,  320- 
21;  Dictionaries,  legal,  30; 
Direct  Nominations,  120; 
Direct  "Primaries,"  142; 
District  of  Columbia,  273n; 
Docs.  316;  financial,  285; 
mun.  283-87;  State  125-28; 
U.  S.  91-92;  Drinking  cup, 
105n;  Economics,  296;  and 
Pol.  Sci.  164-66;  and  soc.  162; 
for  1909,  296,  317;  Education 
in  Agriculture  and  Home 
Economics,  106;  Educational 
Publications,  current,  106 
Educational  Topics,  current 
106;  Eight-Hour  Day,  103n 
Elections,  Corrupt  Practices 
103n;  "Election  of  Senators 
U.  S.,"  142;  Employers 
Liability,  103n;  Employment 
of  Blind,  120;  "Enlargement 
of  Na\T.  U.  S.,"  142;  Ex- 
ceptional Children,  106;  Fac- 
tory Legis.,  135;  Far  East, 
103n;  Federal  Control  of  Com- 
merce and  Corporations,  103n; 
"Federal  Control  of  Inter- 
state Corporations,"  142;  Fire 
Prevention,  105n;  Fourteenth 
Amendment,  104n;  "Free 
Trade  versus  Protection,"  142; 
Garbage  Disposal,  319;  Gov- 
ernment, Business  of,  135-37; 
ownership,  104n;  of  railroads, 
142;  Home  Rule  Charters, 
275;  Housing,  319;  Immi- 
gration, 104n;  Impeachment, 
104n;  in  Journals,  164-66; 
in  legis.  ref.  wk.,  162-67; 
Income  tax,  104n,  142;  In- 
dustrial diseases,  154;  Indus- 
trial Education,  102;  Indus- 
trial, Vocational,  and  Trade 
Education,  106;  Inheritance 
Tax,     120;     Initiative,     104n; 


"Initiative  and  Referendum," 
142;  Insurance,  104n;  Work- 
men's, 104n;  Iron  and  Steel 
in  Commerce,  104n;  Juvenile 
delinquency,  319;  Labor,  163; 
and  strikes,  104n;  "Latin 
American  Laws,"  45;  Law  libs. 
345-46;  Law  Study,  38;  Legal, 
149;  annotated  list  of,  37-40; 
ethics,  38,  162;  Legis.  ref. 
laws,  393-94;  Legis.  ref. 
wk.,  388-96;  Life  Insurance, 
120;  Medical  Inspection,  106; 
Minimum  wage,  203-07,  203n- 
07n;  negative  refs.  205-07; 
Monetary  Question,  104n;  Mo- 
tion Pictures,  105n,  315;  Muni- 
cipal Affairs,  104n,286,  308-21 ; 
Municipal  Corp.  law,  291-93; 
Municipal  Gov't,  288-91,  314- 
16;  Canada,  301;  individual 
cities,  289;  "Municipal  Owner- 
ship," 142;  Mun.  ref.  wk.,  423- 
31 ;  Mun.  res.  wk.,  423-31 ;  Mu- 
nicipal Utilities,  164;  "Navy. 
U.S.  Enlargement",  142;  Ne- 
gro Question,  104n;  New  York 
City,  284, 316,  319;  (Reynolds) 
249n;  N.  Y.  (City)  docs.,  284; 
N.  Y.  (State)  Pub.  Service 
Comm.,  249,  249n;  Northern 
Securities  Case,  104n;  Occupa- 
tion of  Philippines,  104n;  Open 
Shop,  105n;  "Open  versus 
Closed  Shop,"  142;  Order  De- 
partments, 45n;  Parcels  Post, 
104n,  142;  Pardoning  Power, 
105n;  Pensions  for  Mothers, 
105n;  Old  Age  and  Civil  Ser- 
vice, 104n;  Periodicals,  mun., 
317;  Pitts,  docs.,  285;  Play- 
grounds, 319;  Political  Move- 
ments, 139-40;  parties  104n, 
138-39;  Postal  Savings,  104n; 
Preferential  Voting,  105n;  Pri- 
mary Elections,  104n;  Public 
Drinking  Cup,  105n;  Public 
Service  Rates,  105n;  Public 
Utilities,  315;  (See  also  Spec. 
Libs.)  "Published  During  the 


440 


Index 


Year."  146;  Railroads.  104n; 
Gov't  regulation  in  foreign 
countries,  104n;  valuation  and 
capitalization,  104n;  Recipro- 
city, 142;  with  Canada,  104n; 
Recognition  in  International 
Law,  104n;  Recreation,  317; 
Representation,  proportional, 
104n;  School-hygiene,  320; 
schools, 319;Scientific  Manage- 
ment and  Efficiency,  lOon;  Sen- 
ators, Election  of,  104n;  popu- 
lar election  of,  104n;  Session 
Laws,  43-44;  Sewage  dis- 
posal, 320:  Short  Ballot,  lion, 
315;  Smoke  nuisance,  320;  pre- 
vention, 317;  Social  ethics,  163; 
Social  politics,  163;  Social 
Science,  164-66;  Societies, 
State,  Municipal  and  other 
Government  Officials,  105n; 
Southern  States,  law  of,  44; 
Special  Libraries,  lOon;  State 
Charities,  105n;  State  Docs., 
116-17;  Statutory  construc- 
tion, 396-401 ;  Subsidies,  Mer- 
cantile Marine,  104n-05n; 
Sugar,  Economic  Aspect, 
lOon;  Supreme  Court,  U.  S., 
lOon;  Sweating  System,  204— 
07;  Tariff,  lOon;  foreign,  105n; 
Taxation  and  Finance,  local, 
317;  Texas  laws,  44^5; 
"Trade  Unions,"  143;  Trading 
Stamp  Business,  105n;  Train 
Crew  Legislation,  lOon;  Trials, 
24;  Trusts.  10.5n;  Wages.  lOon; 
Water  Supply,  320;  Water- 
ways, Deep.  103n;  Where 
noted,  229;  "Woman  Suf- 
frage," 143;  Women,  Employ- 
ment of,   142;   Wool,   lOon. 

Bibliography,  division,  L.  C, 
105n;  legal,  .37^5,  37n;  Crim- 
inal Law  and  Criminology, 
162;  Legal  Science.  162  (des), 
38-39;  Social  Science,   164. 

Bill  (de(),  89. 

Bill-drafting,  208-12,  231n: 
Bill-drafting     agencies,     laws 


on,  366-79,  Cal.  366-69,  Conn. 
369-70.  Mass.  370-71,  New 
York  371-72,  S.  C.  372-73, 
Great  Britain  373-76,  378-79, 
British  Colonies  376-79,  Can- 
ada 376,  Newfoundland  376, 
Australia  376-79,  N.  S.  W. 
376-77,  Queensland  377,  \'ic- 
toria  377,  Western  Australia 
377-78,  France  379,  Germany 
379;  laws,  list  of,  394;  (see  also 
legis.  ref.  depts.,  laws).  Amer. 
Bar  Assn.  on,  224;  Amer.  Pol. 
Sci.  Assn.  on,  22.5 ;  assistance  in, 
authorized,  171 ;  Bib.,  397-401 ; 
California  (Brunckenon)  212n; 
code  for,  233,  233n;  Def.  72; 
Indiana,  212n;  in  England, 
80:  instruction  in,  223;  Mc- 
Kirdv,  217n:  (Parkinson)  208- 
212,  212n;  Penn.,  185;  Wise, 
175-83;  Wise.  Forms  used, 
177,  179,  181,  183;  Wise. 
Rules,  181. 

Bill-travel  Card,  illus.  of,  215- 
216. 

Bills,  b'd  vols.  89,  230;  Indexes 
230:  current,  exchange  of, 
89-90;  daily  record  of,  215- 
17;  enrolled,  214;  index  to, 
217;  in  legis.  journals,  90;  in 
legis  ref.  wk.  89;  limitation  on 
the  number  of,  69;  progress  of 
through  legislature,  official 
copies,  90,  213-17;  U.  S., 
how  obtained  ,94 ;  when  printed, 
90,  214. 

Bispham,  G.  T.,  13n. 

Black,  Henr\-  C,  30,  59. 

Blackstone,  29. 

Bliss,  131. 

"Blue  Books,"  82;  British,  114. 

Board  of  Trade  Journal,  publi- 
cations noted  in,  115. 

Boards  of  Trade,  pubs.,  305. 

Bogart,  Ernest  L.,  212n. 

Bolton,  Charles  K.,  286. 

Bonger,  W.  A.,  64. 

"Book  Collectors,  Private,"  168. 

Book  numbers  in  law  libs.  47. 


Index 


441 


Book  Review  Digest,  146;  des.  164. 

Books  in  legis.  ref.  liby,  131-43; 

in  mu  n.  ref.  wk.  288-95 ;  in  print , 

see    United  States  Catalog,  3d 

ed.,  and  Cumulative  Book  Index. 

Borchard,   Edwin   M.,   37n,   38, 

149,  162;  Guide  (des),  38. 
Bosanquet,  Helen,  206. 
Boston,  245,  305,  341. 
Boston     Book     Co.,     42,     169; 
city     record,     302;     docs,     in 
index,  281;  finance  com.  252. 
Monthly  Record,  302;  mun.  res. 
in,  252. 
Bostwick,  Andrew    Linn,   242n, 

258. 
Bostwick,      Arthur      E.,      45n; 

(quoted)  238. 
Bourne,  167. 
Bouvier,  John,  30,  60. 
Bowker,  Richard  Rogers,  125. 
Bowman,  Ralph,  256. 
Boyaval,   Paul,  203,  203n,  204, 

205. 
Boyd,  James  Harrington,  133. 
Braddock  (Pa.)  Lib.  312. 
Bradford,     Ernest    Smith,    290, 

316. 
Brief  Making,  14n,  16,  24n,  38, 

53n,  60,  346. 
Briefs  of  Counsel,  23,  24;  cata- 
loguing of,  54;  for  U.  S.  S.  C, 
where    located,    24;    in    legis. 
ref.     wk.,      130-31;     shelf-ar- 
rangement of,  56-57. 
Brauer,  Herman  A.,  261. 
Brissaud,  Jean,  62. 
British  colonies,  bill-drafting  in 

376-79,  legis.  of,  151. 
British     parliamentary'     papers, 

114;  indexes,  114. 
British   Social    Politics,     Hayes, 

203. 
Broadhead,   Henry,   133,  205. 
Brockway,  Zebulon  Reed,  140. 
Brooklyn,     docs,     of,     283-84; 
mun.  reL  in,  252;  pub.  liby., 
318,  319. 
Brooks,     Robert    C.     136;    Bib. 
(des),  309-10. 


Brooks,  Sidney,  205. 

Broom's Legff/  Maxims,  211. 

Brown,  Charles  Harvey,  286, 
Z\b;Bib.  (des),  310. 

Brown,  H.  LaRue,  206. 

Brown  v.  Hoffmeister,  71  Mo. 
411  (Cited)  7n. 

Bruere,   Henry,  246n,  256,  290. 

Bruncken,  212n. 

Brj^ant,  J.  M.,  279. 

Bryce,  James,  80,  136,  224, 
379  (quoted). 

Buenos  Aires,  290,  304. 

"Budget"  (Cleveland)  101; 
National,  docs  on,   100-01. 

Buffalo,  Mun  ref.  in,  252. 

Bulletin  de  L'Ofifice  du  Travail, 
115;  de  Statistique  et  de 
Legislation,  116;  International 
Labor  Office,  202-03;  Bulletin 
of  Bibliography,  166-69; 
Inde.xes  to  liVy  ref.  lists, 
1901-,  321 ;  of  labor  bur.,  U.  S. 
(des)  102. 

Bulletins  of  Educ.  Bur.  U.  S., 
114;  index  in  Rds.  Guide,  114; 
Labor  bur.,  U.  S.  indexed  in 
Rds.  Guide,  114;  preparation 
of  in  mun.  ref.  wk.,  329-30. 

Bullock,  E.   D.,  142-143. 
Bureau  of  mun.  res.   N.  Y.   C, 
337;     of    railway    economics, 
classification    in,    191. 
Bureaus      of      Mun.      Ref.      & 
Res.,5f<;Mun.  Ref.  Bur;  Mun. 
Res.  Bur. 
Burk,  Dr.  Jesse  D.,  252. 
Burlington,     \a..    Council    Pro- 
ceedings, 302. 
Burns,  Allen  T.,  257. 
Butler,  Henry,  87. 

Caen,  France,  304. 

California,  171;  bill-drafting  in, 
212n;  doc.  index,  126;  Equali- 
zation Bd.,  270;  legis.  counsel 
bur.  law,  366-69;  manual, 
123;  legis.  ref.  in,  74;  pubs. 
379;  Legislature  of  1909,  137, 
of    1911,     137;    Lib.    Comm. 


442 


Index 


170;    min.    wage    in,    200-1, 

201  n;    Municipalities,   League 

of,  302;  State  Liby.,  74;  mun. 

ref.  in,  245,  245n;  Univ.,  mun. 

ref.  in,  244,  260,  260n;  mun. 

res.  in,  244n,  422. 
Caiisse,  Carlo,  62. 
Callaghan  cS:  Co.,  42. 
Cambridge,    Mass.,    245;    Pub. 

Liby..  318. 
Campaign  books,  138;  speeches, 

197. 
Campbell,  Robert  A.,  245n. 
Canada,   114;   bill-drafting  376; 

docs.,  llo;  Legal  Systems,  37n; 

Yearbook,  295.  _ 
"Canadian    Laws",    37n;    Mun. 

Journal,  298;  Statute  Law,  45. 
Canterbury     Conciliation     Bd., 

205;    Employers'    Assn.,   205, 

207. 
Card    Cat.    for   correspondence, 

307;    in   legis.    ref.    wk.,    194; 

Index,  of  Bills  drafted.  Wis., 

182;  numbers  of  L.  C.  (  U.  S. 

Cat.)  163. 
Carnegie  Foundation,  145,  146; 

Institution,  125,  287;  bibs,  of, 

162. 
Carranza,  Arturo  B.,  87. 
Carswell  &  Co..  42. 
Carter,  A.  T.,  13n,  14n. 
Case  arid  Comment,  32. 
Case-book  (def),  19;  case-books, 

mun.  corp.  law.  287. 
"Cases  and  Points,"  23. 
Cases  Brought  in  Commerce  Court, 

34;  on  Mun.  Corp.  Law,  291- 

92;  Tables  of.  22. 
Catalogues  of  Law  Libs..  40-^1; 

list,     40-41;     printed     versus 

card,  51. 
Cataloguing,  in  law  libs.,  51-54, 

54n;  are  L.   C.   cards  advis- 
able?    53;  in  legis.  ref.  wk., 

192-04;  in  mun.  ref.  wk.,  326- 

28;  in  spec.  libs..  120n,  192n; 

in  Wis.  legis  ref.  dept.,  174. 
Census   Bur.,  270n,  271,   271n, 

312. 


Central  Law  Journal,  31.  64,  145. 

Centralia,  Wash.,  Proceedings, 
302. 

Century,  The,  143;  Century  Digest, 
(des),  22. 

Chamber  of  Commerce  of  the 
St.  of  X.  v.,  Mo.  Bui,  305; 
of  the  U.  S.  A.  378. 

Chamberlin,  Joseph  L..  63. 

Chambers  of  Commerce,  pubs., 
305. 

Charities,  St.  Control,  269. 

Charity  Organization  Review 
(London).  206;   Society.  207. 

Charlemagne  Tower  Collection 
of  Amer.  Col.  Laws,  44. 

Charles,  Garfield  {Treaties),  26. 
36n.  87. 

Charleston,  docs.,  Index,  281; 
Yearbook,  294. 

Charter-making.  275. 

Charters,  119,  263-64.  275-76, 
286;  and  ordinances,  current, 
280;  collections  264;  colonial, 
82-83;  model,  276. 

Chattanooga,  Mtin.  Rec,  302. 

Checklist  of  Current  mun.  docs., 
285-86;  Checklist  of  U.  S. 
Docs.,  1st  ed..  112;  2d  ed.. 
112;  3d  ed.,  1789-1909,  33n, 
191n;  (des),  91,  112;  of  state 
docs..  12.5-28. 

Cherokee,  124. 

Chesterton,  Cecil,  138. 

Chicago,  330;  Bur.  of  Informa- 
tion and  Publicitv,  253;  Bur. 
of  Pub.  Efficiency,  248.  248n. 
253,  253n;  Bur.  of  Statistics 
and  Mun.  Liby..  312;  charter. 
275;  charter  convention,  1906, 
264;  charters,  264;  City  Club 
Bui.,  304;  City  Council  Jour- 
nal, Mun.  Ref.  Ordinances, 
253n;  Com.  on  City  Expen- 
ditures. 248;  Commerce,  305; 
Harbor  Com.  269;  Law  In- 
stitute, 40:  Mun.  Code.  265; 
Mun.  Lib.  282;  Mun.  Ref.  in, 
242,  248;  ordinances  404-07; 
pubs.  416-18;  mun.  ref.  and 


Index 


443 


res.  in,  252-53,  253n;  mun. 
ref.  appropriations,  341;  police 
situation,  doc.  on,  270;  Pub. 
Libv.,  253,  312,  313,  317; 
Bui.  322;  Checklist,  286;  normal 
school,  310;  School  of  Civics 
and  Philanthropy,  286n; 
Univ.,  248;  Law  School,  223n. 

Chickasaw,  124. 

Child  Labor  Bui.,  145:  legislation, 
99. 

Children,  docs,  on,  98. 

Choctaw,  124. 

Cincinnati,  Ann.  Reports,  267; 
Bur.  of  Mun.  Res.,  342n; 
pubs.  418;  Citizens  Bui.,  305; 
Mun.  Ref.  in,  254;  ordinance, 
407-09;  Mun.  Res.  in,  246n, 
341;  Univ.  254;  Mun.  Ref. 
in,  260. 

Circuit  Courts  of  Appeals  (U. 
S.),  Reports,  sale,  33;  circuit 
courts, U.S.,  17;  abolished,  14n. 

Circulation,   see   loaning   books. 

Citation  Books,  23;  catalogue, 
54;  Citator,  23;  citators,  23. 

Citing  law  books,  abbreviations 
explained,  59-60;  methods,  59. 

Citizens  Lib^y  of  Econ.,  Politics, 
and  Soc,  141. 

Citizenship  laws,  123. 

City  Affairs,  304. 

City,  anagt.  of  St.  gov't.,  262-63; 
"City  and  the  State"  262; 
(City  charters,  see  Charters;) 
City  Club  of  Chicago,  286; 
City  Clubs,  304n;  Council 
Procedure,  332-33, 333n;  (city) 
docs.,  see  docs,  mun.;  City 
Hall,  298n;  Midland  Mun., 
298n;  Life  and  Mun.  Facts, 
305;  (city)  Manager  Char- 
ters, 275;  Planning  Conference 
299n;  wastes,  270. 

Civics  Assns.,  197;  Bib.  for 
Greater  N.  Y.,  249;  (des),316; 
Clubs,  pubs.,  304;  Civic  Room, 
Chi.  253,  253n;  Room,  Cinn., 
254;  Room,   Detroit,  254. 

Civil  Service,  136;  Chronicle  and 


Police  Chronicle,  305;  Com- 
mission, U.S.,  102;  C.  S.  Cooper- 
ators'  News,  113;  laws,  a  party 
measure,  200;  reform,  300. 

Clark,  Champ,  217n,  220. 

Clark,  W.  D.,  12n. 

Clark,  W.  L.,  13n,  14n,  24n,  29. 

Clarke,  John,  38. 

Classification  (Cutter),  47;  in 
law  libs.,  47-51;  arguments 
for,  48;  against,  48-49;  G.  E. 
Wire  on,  48-49;  of  N.  Y.  S.  L. 
50-1;  (Berry  on)  (Wire  on) 
49n;  in  legis.  ref.  wk.,  189-92; 
alphabetical,  191;  Bur.  of 
Railway  Econ.,  191,  in  legis. 
ref.  wk.,  232;  decimal,  190; 
Indiana,  190;  L.  C,  191-92; 
N.  Y.  Pub.  Serv.  Comm.,  191; 
R.  I.,  191;  Whitten,  190-91; 
Wis.,  190;  in  mun.  ref.  wk., 
324-26;  N.  Y.  St.  Law  Libv., 
50-51;  Spec.  Libs.,  192n;  need 
in  mun.  ref.  wk.,  342;  text- 
books, legal,  48-49;  U.  S.  Doc. 
Office,  92;  Yr.  Bk.  of  Legis. 
N.  Y.),  119. 

Clef,  Myrtile,  251n. 

Clerk  at  Speaker's  Table,  129, 
185. 

Cleveland,  Frederick  A.,  101, 
246n,  256. 

Cleveland,  Bur.  of  Information 
and  Publicity,  254;  Mun. 
Assn.,  83;  Mun.  Bui.  305; 
Mun.  Ref.  in,  242,  254,  261; 
Pub.  Liby.,  261. 

"Clipping  Bur.  and  the  Liby." 
(Luce),  161n;  in  legis.  ref.  wk., 
158-62;  in  mun.  ref.  wk., 
307-08. 

Coal  Mines  (min.  wage)  Act, 
1912,  202. 

Code,  28,  Def.  27. 

Coke,  29;  Coke  on  Littleton,  29. 

Cold  Storage,  doc.  on,  120. 

Cole,  Theodore  Lee,  44. 

Coleccion  de  las  Instituciones 
Politicas  y  Juridicas  de  los 
Pueblos  Modernos  (des),   152. 


444 


Index 


College  Debating,  Yearbook  oj 
(Nichols),  204n.  205. 

College  of  the  City  of  N.  Y., 
336-37;  mun.  ref.  in,  259. 

Collier,  John,  250. 

Collier's.  143. 

Colorado,  legis.  ref.  in,  232; 
legis.  ref.  in  St.  Univ.,  77; 
Min.  Wage  in,  200-01;  Colo. 
Springs,  Summary  of  Pro- 
ceed i  figs,  302. 

Colson,  Frederick  D.,  221. 

Columbia  La'w  Journal,  04:  Univ., 
209;  Univ.  Studies,  146,  317; 
Mun.  Ref.  in  Univ.,  259. 

"Coming  Events,"  113. 

Comite  de  Legislation  (France) 
116. 

Commerce  and  Labor  Dept.,  107. 

Commerce  Court,  15;  abolished, 
15n;  Decisions,  pub.  by  Atty- 
Gen.,  34n;  Decisions,  where 
pub.,  34,  34n. 

Commerce,  Dept.  of,  271. 

Commercial  Laws  of  the  World, 
133;  news,  305;  organizations 
197. 

Commission  Gov't.,  264;  books 
on.  290-91;  Law,  Iowa  (Beard 
&Schultz),  167. 

Commissioners  on  L'niform  St. 
Laws,  154-56. 

Committee  hearings,  how  ob- 
tained, 94;  where  noted,  113; 
Comm.  of  Fifty,  111.,  157. 

Committees,  reports  of,  bills  in, 
90. 

Common  Good,  305;  common  law, 
def.,  11-12,  12n. 

Commons,  John  R.,  139,  247, 
310. 

Comparative  data,  cat'g  of, 
326-27;  Law  Bur.  (.\mer.  Bar 
.Assn.)  objects,  147-48;  Law, 
cat'gs  of,  40,  in  for.  docs., 
115-16;  "Comp.  Law  in  the 
Blue  Books,"  115,  151;  Stud- 
ies, 1.33-35;  Studies  in  Comp. 
Law,  115;  Comparative  Law, 
see  also  Laws,  compilations  of: 


Comparative  Legislation,  116n, 
147-57;  rules  (Wis.)  330; 
(Dodd)  116n;  in  St.  docs.,  120- 
21;  Societies,  149-52;  (Whit- 
ten),  73n;  see  also  Laws, 
compilations  of. 

Comparative  Parliamentary  Law, 
213;    see  also  procedure,  legis. 

Compiled  Ordinances,  '  265; 
Statutes,  (U.  S.)  27. 

Comprehensive  Index  (des),   110. 

'Comptroller  of  the  Treasury," 
20n. 

Concerning  Mun.  Ownership,  299. 

Conciliation  and  Arbitration, 
102n. 

Conference  for  Good  Citv  Gov't, 
1910,  241n,  295;  of  Commrs. 
on  Uniform  St.  Laws,  154-56, 
156n,  157n. 

Congress,  Business  of,  137. 

Congressional  Directory,  19;  legis. 
ref.  bur.  hearings,  187n;  legis. 
ref.  bur.  proposals,  79-80; 
186-87;  legis,  ref.  bur.  pro- 
posed appropriation,  187,  22(>- 
27;  Record.  Ill,  113,  188; 
Set,  93-96;  Set,  introduction 
of  serial  no.  112;  Set,  with- 
drawal of  reports  from,  93-94. 

Connecticut,  Bill-drafting  in, 
171;  Laws  on,  369-70;  legis. 
ref.  in,  74;  Pubs.  380;  Regis- 
ter and  Manual,  369,  3fi9n; 
St.  Liby.  mun.  docs,  in,  283; 
Taxation  of  corporations  pay- 
ing ta.xes  totheSt.spec.  comm. 
122. 

Conrad,  131. 

Consolidated  Index,  111. 

Constitution,  Oklahoma.  123; 
U.  S..  123;  Economic  Inter- 
pretation of,  139;  where  pub., 
85;  when  ratified,  85;  index  to, 
85;  latest  cd.,  85n. 

Constitutional  amendments,  files 
of,  90;  convention  proceed- 
ings, 24-25;  conventions,  bib. 
of  proceedings,  84;  provisions 
on  mun.  gov't,  263. 


Index 


445 


Constitutions,    24-25,    81;    an- 
notated,    25;     foreign,     com- 
pilations of  (des)  85-87; Indian 
nations,  124;  Latin- American 
86-87;    new,  where  pub.,  87 
new,  summarized,  119;  State 
84;  St.  compilations  of,  82-84 
St.,      where      pub.,       81-84 
(Thorpe),  35,  35n. 
Continental  Legal   History  Series 

(des),  61-62. 
Convict  labor,  doc.  on,  102. 
Cooley,  Roger  W.,  14n,  29,  38, 

346n. 
Co-operation   in  legis.  ref.    wk., 
173,  228-30;  in  mun.  ref.  wk., 
342-43. 
Co-operative    Credit,    doc.    on, 

121. 
Cornell,  Univ.  Liby.,  313;  mun. 

docs,  in,  283. 
Corporations,     U.    S.     Bur.    of, 

pubs.,  list  of,  102. 
Correspondence  in  mun.  ref.  wk., 
306^7;  value  of  in  legis.  ref. 
wk.,  158. 
Corrupt     and     Illegal     Practices 

Prevention  Acts,  134. 
Corwin,  Edward  S.,  88. 
Cost    of  Living,    102n;    doc.    on 
(des),  98;  U.  S.  doc.  on  (des)  97. 
Cotton  Exchange,  doc.  on,  102; 

Tare,  doc.  on,  102. 
Council    of    law    reporting,    16; 

council  proceedings,  265. 
Councils,  see  city  councils. 
Court   decisions.    Constitutional 
law,  119;  in  legis.  ref.  wk.,  88; 
see  also  court  reports. 
Court  of  Claims,  15;  (des),  15n; 
Reports,   sale  of,  34;   of  Cus- 
toms   Appeals,    20;     Reports, 
20n;  Reports,  sale  of,  34. 
Court    reporting,    England,    16; 
Reports,     13-19    and     notes; 
arrangement    of,    55-56;    his- 
tory, U.  S.,  14n;  Eng.,  (trea- 
tises on)   14n;  how  cited,  15; 
sale  of  33-34,  33n;  in  federal 
docs.  33-35. 


Courtney,  166,  320. 

Courts,    the    (McLaughlin)    139; 

Courts  of  the  State  of   N.    Y., 

14n:  U.  S.,  14-21. 
Cranch's  Reports,  15. 
Crandall,  Samuel  B.,  87. 
Crane,  Robert  T.,  260. 
Criminology       and       Penology, 

(books    on),     140;    docs,     on 

(des),  98. 
Cumulative  Book  Index,  146,  163, 

166;  (des)  164. 
Cunningham,  Jesse,  159n. 
Currency,    Comptroller   of    the; 

Digest  of  Nat.  Bank  Decisions, 

20,  34n. 
Current  Events  Index,  146. 
Current  Law  (des),  22. 
Currier,  Albert  H.,  140. 
Cutter  Classification  in  L.  Libv, 

47. 
Cyc.  of  Amer.  Gov't.,  27n;  of  Law 

and  Procedure  (des)    30. 

Daily  Consular  and  Trade  Re- 
ports, 115,  271. 

Dallas,  mun.  ref.  in,  254;  Re- 
ports, 15. 

Dareste  de  la  Chavanne,  86. 

Dates,  indexes  to,  169-70. 

Davenport,  Chas.  B.,  133. 

Dawson,  Miles  M.,  134,  163. 

Dayton,  305;  mun.  ref.  in.  254; 
mun.  res.  pubs.  418-19. 

Dealey,  Jas.  Quayle,  84. 

Debaters^  handbook  series,  141^3. 

Decimal  classification,  see 
Dewej'. 

Decennial  Digest,  22,  60. 

Decisions,  81,  on  mun.  questions, 
287;  of  administrative  [offi- 
cers, fed.  19-20;  state,  20-21; 
see  also  court  decisions,  court 
reports. 

Declarationof  Independence,123. 

Definitions,  legal,  30. 

Delaware,  doc.  index,  126. 

Delinquent,  145. 

Deming,  Horace  E.,  264n,  276, 
288. 


44G 


Index 


Democratic  Republican  Organi- 
zation of  N.  v.,  1904  (Macy) 
i;i.S. 

Denmark,  rural,  134. 

Denver,  77;  Citv  of,  302;  Gov't 
of,  294;  Mun.  facts,  302. 

Des  Moines,  charter,  275;  mun. 
ref.  in,  2.54. 

Departmental  pubs.,  U.  S.,  101- 
09. 

Deploige,  Simon,  134. 

Depository  Cat.,  46,  46n;  libs., 
34,  93,  93n,  94;  selection  of 
docs,  by,  95;  Set,  93-96. 

Descriptive  Word  Index,  22n. 

Detroit,  mun.  ref.  in,  254;  pub. 
lib.,  313. 

Detroiter,  305. 

Deutscfter  Reichsanzeiger,  202. 

Dewey  decimal  classification, 
expansion  of,  190-95;  for  clip- 
pings, 160;  for  correspondence, 
307;  in  law.  libs.,  47;  in  legis. 
ref.  wk.,  190-95;  in  mun.  ref. 
wk.,  32.5-26. 

Dewev,  Melvil,  73. 

Dial,  322. 

Dictionaries,  legal,  9,  10,  11; 
law-French,  law-Latin,  30;  list 
of  30. 

Dictionary  cat.  (def.),  51. 

Digest  of  City  Charters,  264;  of 
State  Banking  Statutes,  100;  of 
state  constitutions,  S3;  of 
nat'l  bank  decisions,  20;  of 
official  opinions  of  attorneys- 
general,  20;  of  opinions  of 
Judge-advocates-general,  20. 

Digesting  data  in  mun.  ref.  wk., 
329-30. 

Digests,  21-22. 

Dijon,  France,  304. 

Dillon,  John  Forrest,  291,  331, 

332,  333n. 
Direct  Primary  law,  Calif.,  138. 
Directories,  legal,  45. 
Directory    of    publishers,     168; 

and  booksellers,  14n. 
Distributive    or   store  co-opera- 
tion, doc.  on,  121. 


District  courts,  U.  S.,  17. 

Dist.   of    Columbia,   272,    272n; 
doc.  on,  99;  gov't  of,  290. 

Docs,  as  gifts,  188-89;  Canada, 
115;  current,  228-29,  current, 
lists  of,  127-28;  Fed.  on  mun. 
affs.,  270-73;  288;  foreign,  114- 
16;  foreign,  noted  in  Journals, 
11.5-16, 116n; gov't  inlaw  libs. 
33-36;  Great  Britain,  see  also 
parliamentary'  papers;  Index, 
95;  mun.  check-lists  of,  283-87; 
mun.  collected,  266-«8,  283; 
mun.  current,  285-86;  mun. 
dept.  268-69;  editing  of,  267; 
exchange  of,  323;  mun. 
(Greathouse)  113;  in  law  libs., 
36;  in  legis.  ref.  wk.,  128; 
indexes,  281-82;  on  finance, 
285;  pub.  and  distribution, 
266-67;  selection  of,  267;  where 
listed,  322 ;  office,  classification, 
191;  office  U.S.,  110;  state  and 
mun.  as  sources  of  information, 
270;  St.  check-lists,  127-28, 
St.  Current,  128,  St.  dept., 
124-25;  St.  (Greathouse),  113; 
St.  in  law,  liby.,  36;  in  legis. 
ref.  wk.,  116-28;  St.  in  lib.  of 
Cong.,  127;  St.  indexes  and 
check-lists,  125-28;  St.  on  mun, 
aflf.  269;  U.  S.  91-114;  U.  S. 
Cloth  binding,  94-95;  U.  S. 
compilations  of  St.  laws  in,  101- 
09;  U.  S.  current,  where  noted, 
109, 112-14;  U.  S.  distribution, 
93,  93n,  94;  U.  S.  Indexes, 
check-lists,  etc.,  109-11;  U. 
S.  Lib.  of  Cong.,  card  nos.  for, 
in  Mo.  Cat.  HI;  U.  S.  (Omis- 
sions from  depository  sets), 
96n;  value  of,  95-96;  U.  S. 
(Wyer  on)  (Everhart  on)  91; 
where  noted,  113. 
Dodd,  \V.  F.,  27n,  85,  86n,  87, 
116,  116n,  150,  151,  152,  273n, 
289  (rev.  of  Thorpe),  83. 
Dougherty,  J.  Hampden,  136. 
Drafting  of  ordinances,  239-40; 
330-32;  aids  in  331. 


Index 


447 


Draftsmen,  ideal,  217n,  instruc- 
tions to,  233;  training  of,  217n, 
217-24. 

Dresdner  Anzeiger,  303. 

Du  Faure,  116. 

Dublin,  Louis  I.,  163. 

Dudgeon,  M.  S.,  217n,  219. 

Dunlop,  Geo.  H.,  303. 

DiJsseldorf,  mun.  college,  337, 
337n;  mun.  res.  in,  261. 

Eakins,  W.  G.,  45n. 
Eclectic  Lib.  Cat.  113. 
Economic  Journal  (des),  165. 
Editorial  Gongora,  152. 
Education   Bur.,   273;  Buls.   in- 
dexed, 114;  pubs.,  106. 
Education  in  Germany,  106. 
Educational   directory,    106;    Re- 
view, 144. 
Efif.  Comm.  State,  261n;  in  city 

gov't.,     341-2;    "Standards," 

341. 
Election  of  Senators,  doc.  on,  98. 
Electric  Railway  Journal,  299. 
Elliot,  Chas.  B.,  291. 
Elliott,  Edward  C.,  108. 
Elster,  131. 
Ely,  Richard  T.,  141. 
Employers  Assn.,  207. 
Emrich,  J.  O.,  54n. 
Encyclopcedia     of     Local     Gov't, 

Bd.   Requirements,  293;    legal, 

30. 
Engineering     Mag.,     144,     300; 

News,  300. 
England,   114;  Gov't  of  (Lowell) 

378-79;    local    gov't  in,    289; 

local  gov't,  books  on,  291-93; 

Local     Gov't     (1908-9),     292; 

min.  wage  laws,  202;  see  also 

Great  Britain. 
Englemann,  Arthur,  62. 
English    Reports,    Full     Reprint 

(des),   17;   Ruling  Cases  (des), 

18. 
Engrossment  of  bills,  214. 
Enrolled   Bills,  214. 
Epileptics,  colony  care,   157;  in 

111.,  157. 


Equitable  Life  Ins.  Soc.  of   U.  S. 

v.  Goode,  (101,  la.  160  cited), 

7n. 
Equity,  12,  I2n;  Series,  145. 
Ernst,  Geo.  A.  O.,  252. 
Esmein,  A.,  62. 
European   Countries,      legis.  of, 

151. 
Evans,  L.  L.,  267n. 
Everhart,  Elfrida,  91,  96,  96n. 
Everts,    Leslie   L.,    247. 
Everybody's,  143. 
Exchange,  323;  in  legis.  ref.  wk., 

189;  in  mun.  reL  wk.,  342;  of 

laws,  46. 
"Executive  and  the  Legis.", 212n. 
Explosives,  model  laws,  156. 

"Factories,"  comfort,  health  and 

safety  in,  154. 
Factory  legis.,  134. 
Fairlie,     John    Archibald,     136, 

260,  270,  287,  288,  303n,  311, 

314,  331,  332,  333n. 
Fanning,  C.  E.,  141,  142. 
Farmers'  Bulletins,   101-02,  271, 

271n;  indexed  in  Rds.  Guide, 

114;  Institutes,  doc.  on,  107. 
Farnam,  Henry  W.,  162. 
Fed.  docs,  see  docs.  U.  S. 
Fed.  Reporter,  17. 
Ferri,  Enrico,  64. 
"Festina  Lente,"  211-12. 
Filing  methods  in  legis.  ref.  wk., 

194;  in  mun.  ref.  wk.,  328. 
Finance,  Com.  Boston,  252. 
Financial    Statistics,   state   doc. 

on  1890  and  1895,  120. 
Finch,  J.  A.,  36n. 
Finley,  John  H.,  136,  212n. 
Fire  and    Water  Eng'r'g.,  300. 
Fire    Insurance,    Zartman,    200; 

marshal  assn.  of  Amer.,   156; 

marshal  law,  model,  156. 
"First  Reading,"  213. 
Fish,  Carl  Russell,  136. 
Flack,  Horace  E.,  251n,  252. 
Flagg,  Samuel  B.,  279. 
Fletcher,  29. 
Flies,  doc.  on,  271n. 


448 


Index 


Flood.  T.  H.  &  Co.,  14n,  42,  (iO. 

Flov.  Hinrv,  293. 

Foltz.  El  Bic  K.,  136. 

Fulwcll,  Amary  Prescott,  294. 

Foreign  and  domestic  commerce, 
bur.  of.  271. 

Foreign  codes  accessible  in  Eng- 
lish. 148;  law  collections  in 
U.  S..  148,  149;  compilations, 
36;  mass.  cat.  of,  41;  (see  also 
comparative  law);  laws,  guides 
to.  38;  relations  (U.  S.)  comm. 
on  (Senate)  35n,  36n;  Tariff 
Notes,  107. 

Fort  Wavne,  Indiana,  mun.  ref. 
in,  254". 

Forum,  143. 

Fosdick,  Raymond  B.,  238n. 

Fouilles,  A.,  63. 

Foulke,  \Vm.  Dudley,  343n. 

Fo'ci'ler  V.  Gilmore,  (30  Tex.  432 
cited)  7n. 

France,  114;  bill-drafting  in, 
379;  docs,  of,  115;  legis.  ref. 
in,  151;  Ministere  d'Interieur, 
296:  mun.  finance,  296. 

Franchises,  294. 

Frankel,  Lee  K.,  134,  163. 

French  Spoliation  Claims,  Con- 
densed Findings,  35. 

Freund,  Ernst,  68-71;  quoted, 
68,  223n. 

Frost,  Harwood,  294. 

Fuld,  Leonhard  Y.,  293. 

Galveston,  charter,  275. 

Game  laws,   102;  doc.   on,   107. 

Protection,  doc.  on,  107. 
Garbage  disposal  Doc.  on,  270. 
Gareis,  Karl,  63. 
Garland,  Jas.  Smith,  291. 
Garner,  Jas.   W.,  62. 
Garnishment     of    wages,     laws, 

compilation  of,  121. 
Garofalo,  Raffaelle,  64. 
fiarraud,  F"rancois,  62. 
Gary  lib.,  40,  149. 
Gavlord,   binders,    195. 
Geldart,  W.  M..  12n. 
Georgia,     constitution     of,     82; 


legis.  ref.  proposed,  232;  reso- 
lution, 347-4S. 

German  Imperial  Banking  Laws, 
100;  Industrial  Education,  106; 
Stock  Exchange  Regulations, 
100. 

Germany,  114;  Ag.  credit  in,  doc. 
on,  97;  bill-drafting  in,  379; 
legis.  ref.  150;  min.  wage 
law,  202;  mun.  admin,  in, 
289;  Yearbook,  295. 

Gibbon,  134. 

Gifts  in  legis.  ref.  wk.,  188-89; 
in  mun.  ref.  wk.,  323;  to  law 
libs.,  47. 

Gilbert,  Frank  B.,  quoted,  7. 

Gillican,  E.  O.,  255. 

Giron,  Vicente  Romero,  152. 

Gladstone,  373. 

Glasson,  E.,  62. 

Globe  Wernicke  files,  178,  180. 

Glynn,  Geo.  A.,  87. 

Godfrey,  Mollis,  293. 

Gomme,  Geo.  Laurence,  311. 

Good  Gov't.,  300;  assn.,  314; 
roads,  300. 

Goode,  J.  P.,  269. 

Goodnow,  F.  J.,  15n,  136,  139, 
289,  314. 

Gov't,  accountant,  300. 

Gov't,  business  of  (books  on), 
135-37;  congressional  inquiries 
into,  list  of,  101  (docs,  see 
docs.);  of  Amer.  cities,  246n; 
officials,  quasi-judicial  deci- 
sions and  opinions  of,  20-1 ; 
societies  of,  304;  pubs.  (Great- 
house)  (des),  113;  interest 
in  mun.  afT.  343,  343n. 

Governor  89,  214;  signature, 
214-15;  messages  of,  128,  197, 
224;  messages,  cat.,  194;  mes- 
sages, digest,  119;  messages, 
N.  Y.  Index,  120. 

Graft  exposures,  238,  238n; 
prosecutions,  238n. 

Grand  Rapids,  mun.  ref.  in,  254; 
pub.  liby,  241,  286,  318. 

"Grandfather  Clause,"  200. 

Gray,  Justice,  19;  (quoted)  29n. 


Index 


449 


Gray's  Inn,  40. 

Great  Britain,  bill-drafting  in, 
373-76,  378-79.  Bd.  of  trade, 
115;  docs,  of,  114-15;  legis.  ref . 
151;  min.  wage  laws,  202; 
Yearbook,  295;  see  also  Eng- 
land. 

Greater  Dayton,  305. 

Greater  New  York,  305. 

Greathouse,  Mary  C,  113. 

Green  Bag,  31,  32,  64. 

Grey,  Wm.  Edward,  130. 

Grinnell  College,  Iowa,  mun. 
ref.  in,  244,  259. 

Gross,  Chas.,  Bib.,  311;  Hans, 
64,  150. 

Growth  of  Cities,  307. 

Guides  to  foreign  laws,  38,  162. 

H.  M.  Stationery  Office,  114. 
Haggard,  H.  Rider,  134. 
Haines,  Chas.  G.,  261. 
Haines,  Lynn,  136-7. 
Halbert,  L.  A.,  255n. 
Halle  a/S.,  Gov't  of,  289n. 
Hamilton,  John  Judson,  290. 
Hammond,  M.  B.,  207n. 
Handlist  of  Amer.  Statute  Law 

(Mass.)  43-44;  (des),  41. 
Hanmer,  Lee  F.,  279. 
Hardy,  Rives  B.,   158. 
Harper's,  143. 
Harris,  Henry  J.,  303n. 
Harrison,  A.,  134. 
Hartford,     (Conn.),    City    Plan 

Comm.,  277. 
Hartwell,  Edward  M.,  303n. 
Harvard   Law    Rev.,  31,  64-65, 

145;    (des),  32;    Library,    9n; 

school,   40;   lib.  43;    lib.  cat., 

25,  51. 
Harvard   Univ.,   163;   mun.   ref. 

in,  244-45;  259;  mun.  res.  in, 
•  244n, 245. 
Haskins,  269. 
Hasse,  A.  R.,  44,  125,  127,  285, 

287,  311;  Index  to  Econ.  Ma- 
terial, 126-27. 
Hastings,  W.  G.,  63. 


Hatton,  A.  R.,  261;  Digest,  264, 

275. 
Havana  (Cuba),  290;   sanitation 

of,  273. 
Hayes,  Carleton,  203,  207. 
Health,  public,  see  Public  Health. 
Hearings,  state  legis.  com.  124. 
Hering,  269. 
Henry,  Robt.  L.,  63. 
Hershey,  88. 

Hichborn,  Franklin,  137. 
Hicks,  Frederick  C,  38,  59. 
Hinds,  Asher  C,  129. 
Hind's  Precedents,  129. 
Hindu  Law,  Leading  Cases  on, 

150. 
Hirst,  Francis  W.,  289. 
Hitchcock,  Henry,  84. 
Hoboken,  mun.  ref.  in,  255. 
Hodder,  Frank  H.,  311. 
Hohoff,  A.  W.  von,  256. 
Hoke,  H.  G.,  279. 
Holmes,  G.  S.,  281. 
Home  rule  charters,  275. 
Hookstadt,  Carl,  113. 
Hopper,  Franklin  F.,  45m,  lS9n. 

Hornbook  Series,  29n. 
Horr,  Norton  Townshend,  291. 
Horton,   Henry  P.,  64. 
Hotchkiss,  Wm.  E.,  20n. 
Hough,   Franklin   B.,  83. 
House  Document  Room  94. 

House  Docs.,  94;  annotated  list 
of,  for  legis,  ref.  liby.,  100-1; 
Journals,  94;  Manual  (U.  S.), 
129,  129n;  of  Commons,  Man- 
ual oi,  130;  Reports,  94:;  (des), 
96. 

Housing,  293. 

Houston,  302. 

Howe,  Frederic  G.,  137,  139,  2.50. 

Howell,  Rapelje,  62,  64. 

Howland,  Wm.  B.,  297,  317. 

Hubner,  Rudolf,  62. 

Hufeland,  Otto,  282. 

Hunt,  Meyer,  267. 

Hupper,  R.  H.,  52,  52n. 

Husik,  Isaac,  63. 

Hutchins,  B.  L.,  134. 

Huvelin,  Paul,  62. 


450 


Index 


Hvgienic  Laboratory  (U.  S.), 
'272. 

Ihering,  Rudolf  von,  63. 

Ilhcrt,  Sir  Courtney,  12n;  quoted 
373-74. 

Illinois,  bill  drafting  in,  171; 
doc.  index,  126;  doc.  list,  127; 
doc.  on,  educ.  com.,  122; 
doc.  on  occupational  diseases, 
122;  on  pub.  charities,  122;  on 
town  and  county  gov't,  270; 
efif.  comm.,  261n;  legis.  pro- 
cedure, 130;  legis.  ref.  appro. 
226;  law,  348-50;  legis.  ref. 
wk.,  75-7;  mayors  assn.,  302; 
Univ.,  77,  324;  libv.  school, 
124, 221, 328;  problems  346^7, 
402,  431-33;  univ.  mun.  res., 
244,  260;  univ.  Studies,  307; 

Illuminating  Engineer,  300. 

ImhofT,  Ono  Mary,  192,  193. 

Immigration,  Report  of  the  Imm. 
Comm.,  42v.,  98. 

Income  Tax,  doc.  on,  121. 

Incorporated  law  society,  Lon- 
don, 41. 

Incorporation  of  business  corps., 
155. 

Independent,  143. 

Index  Analysis  of  the  Federal 
Salutes,  53,  53n;  review  of, 
27,  27n. 

Index  of  Econ.  Material  in  Docs, 
of  the  States,  287;  (des),  126-7. 

Index  of  Legislation,  274;  classi- 
fication, 191. 

Index  to  Current  Events  (des), 
170. 

"Index  to  Dates  of  Current 
Events,"  146,  168;  (des),  170. 

Index  to  Legal  Periodicals  and 
Law  Libv  Journal,  31,  143n, 
147,  169;' (des),  32. 

Index  to  Legislation,  N.  Y.,  119. 

Index  to  Ref.  Lists,  :i21. 

Index  to  Subj.  Bibs.,  321. 

Indexes,  to  Bibs.,  320-21;  to 
bills,  194,  217;  to  books,  167- 
68;  to  collected  city  docs.,  281; 


to  docs.,  109-12;  to  docs., 
state,  125-28,  to  gen.  mag., 
323;  to  legal  periodicals,  32; 
to  legal  pubs.,  31,  32;  to  N.  Y. 
Manuals,  282;  to  newspapers 
and  dates  of  current  events, 
169-70;  to  periodical  and 
society  proceedings,  168-69, 
168n. 

Indexing,  uniform,  needed  in 
legis.  ref.  wk.,  232. 

Indian  Nations'  Constitutions, 
124;  treaties,  44,  124;  tribal 
laws,  44. 

Indiana,  Bill  drafting  in,  171, 
212n;  legis.  ref.  in,  76,  228, 
232,  324;  legis.  ref.  appropria- 
tion, 173,  226;  leg.  ref.  classi- 
fication, 190;  leg.  ref.  law,  350- 
51,  organization,  171-73;  pubs. 
380;  mun.  ref.  in,  245;  State 
Librarian,  172;  State  library, 
41,  319;  University,  172,  245; 
Mun.  ref.  in,  244,  260. 

"Indices  to  legal  literature,"  32n. 

Individual  Cities,  Gov't,  of ,  289- 
90. 

Industrial  Arts  Index,  (des),  169; 
Democracy  —  Webb's,  206; 
diseases,  153;  education,  doc. 
on,  107;  education  in  U.  S., 
doc.  on,  102. 

Inheritance  tax,  doc.  on,  99. 

Initiative,  Referendum  and  Re- 
call, 139,  140,  167. 

Insane,  Care  of,  134;  doc.  on, 
122. 

Institut  de  Droit  Comparee 
Revue,  152;  of  Actuaries,  Jour- 
nal, docs,  noted,  116. 

Institute  of  Agriculture  in  Rome, 
153;  of  Bankers,  Journal, 
docs,  noted,  116;  Guiridico 
della  R.  University  di  Torino, 
152;  Ibero- Americano  de  Dere- 
cho  Positivo  Comparado,  Re- 
vista  (des),  152. 

Insurance,  Compulsory,  142;Lau) 
Journal,  154;  see  also  work- 
men's   insurance;    employers' 


Index 


451 


liability,  workmen's  compensa- 
tion. 

Interior  Department  and  Gen- 
eral Land  Ofifice  Decisions, 
19,  34n. 

Intercollegiate  Debates,  204,  205, 
206. 

International  Assn.  of  Chiefs  of 
Police,  299n;  Harvester  Co., 
doc.  on,  102;  Institute  of  Legal 
Bibliography,  American  edi- 
tion, Journal,  38-39;  Institute 
of  Social  Bibliography,  Jour- 
nal, 164;  Labour  Office,  5m/- 
letin,\bZ,  202 ; Latw  (Hershey), 
88;  Law  and  Continental  Law, 
Bibliography  of,  38;  Law  Digest, 
(Moore)  35,  35n,  88;  Mun. 
Congress,  271,  343,  343n;  In- 
ternationale Vereinigung  fiir 
Vergleichende  Rechtswissen- 
schaft  und  Volkswirtschafts- 
lehre,  Jahrbuch   (des),    151. 

Interstate  Commerce  Commis- 
sion Decisions,  19,  34n;  Laws, 
154; 

Investigations,  where  noted,  128, 
228-29,  287;  see  also  Legisla- 
tive Investigations;  also  Cor- 
porations, Bur.  U.  S.,  128. 

Iowa,  Employer's  liability  Com- 
mission, 123;  leg.  ref.  in,  74; 
pubs.,  380;  mun.  ref.  in,  259; 
municipalities,  298n. 

Italy,  Yearbooks,  296. 

Ivins,  William  M.,  294. 

Jackson,  Hilton  E.,  30. 

Jahrbuch  (comparative  law)  des., 
151;  fiir  Nationalokonomie 
und  statistik  Indexes,  169. 

James,  E.  J.,  264,  276,  289;  Her- 
man G.,  260,  276. 

Jameson  (rev.  of  Thorpe),  83. 

Jastrow,  Mrs.  R.  S.,  63,  64. 

"JefTerson's  Manual,"  129. 

Jelf,  Ernest  Arthur,  134. 

Jersey  City,  mun.  ref.  in,  255. 

Johns  Hopkins  University  Stud- 
ies, 146,  301. 


Johnson,  T.  R.,  293. 

Jones,   Chester  Lloyd,  72,   72n, 

130,     138,     164,     212n,     213; 

Hilda  Vernon,  114;  L.  A.,  31, 

Index,  (des),  32. 
Josephson,  320. 
Journal    of   Criminal  Law    and 

Criminology     (see   also  Amer. 

Inst,   of  Crim.  Law,  &  Crim., 

65);    Political  Economy,    144, 

165,  296n,  300,  317;  see  also 

Periodicals. 
Journals,  Bills  in,  90. 
Joyce,  Joseph  Ashbur^',  294. 
Judge-Advocate  General  of  the 

U.    S.    Army;    Opinions,    20; 

Digest  of,  34n. 
Judicature  Acts,  13n. 
Justice    Dept.    (U.    S.),  41,  60; 

Liby.  43. 

Kaiser,  J.  B.,  231n;  317. 

Kallen,  Horace  M.,  64. 

Kansas  City,  324,  327;  Mun.  ref. 
in,  241,  243,  255;  ordinance, 
410-12;  pubs.  419;  mun.  ref. 
wk.,  appropriations,  340,  341; 
public  Hbrary,  313. 

Kansas,  legis.  ref.  in,  74;  pubs. 
380;  mun.  ref.  in,244n;  munic- 
ipalities, 298n;  univ.  mun. 
ref.  in,  244. 

Kates,  PhiUp,  343,  343n. 

Keeler,  Harris  S.,  248,  253. 

Keeper  of  the  Seals,  France, 
115-116. 

Kelley,  Florence,  134;  Joseph  I., 
64;  &  Son,  London,  42. 

Kentucky,  doc.  index,  126;  legis. 
ref.  in,  76. 

Kerr,  J.  W.,  278. 

Key-number  system  (of  Am. 
Digest  system),  22n. 

King,  Clyde  Lyndon,  164,  291, 
294;  P.  S.  &  Son,  115;  Printer 
and  Controller  of  Stationery, 
Canada,  115. 

Kite,  Elizabeth  S.,  122. 

Klingelsmith,  Margaret  C,  37n. 

Kocourek,  Albert,  63. 


452 


Index 


Kohler,  Josef  (men),  63. 
KommunaUs  Jahrbuch,  295. 
Korkunov,  N.  M.,  03. 
Kroeger,  Alice  \i.,Guide,^l,  117, 

V21;Guidf  (Ed.  2)  and  Siipp., 

92,  1()9,  IGS,  31  In. 

L.  R.  A.  Cases  as  Authorities,  23. 

Labor  and  Labor  Disputes,  N.  Z., 
133. 

Labor,  L'.  S.  Commr.  of,  102-3; 
Dept.  U.  S.  Buls.,  indexed, 
114;  depts.  of,  203;  laws,  153; 
laws,  foreign,  102n;  laws  ot 
U.  S.,  102n;  docs,  on,  102; 
legislation  of  1912,  102;  legis- 
lation (Pic J  (des),  135;  St., 
Index  to,  through  1912,  103; 
office,  France,  115;  statistics, 
bur.  of,  19S. 

LaFollette,  Senator,  79;  Weekly, 
144. 

Lalor,  131. 

Lambeth  v.  Milton,  2  Robinson 
(La.)  81,  7n. 

Langworthy,  C.  P.,  270. 

Lapp,  John  A.,  173,  195,  212n, 
229,  342. 

Latin- Amer.,  Mun.  Organization 
in,  290;  laws,  45. 

Latin  countries,  legis.  of,  l.'JO. 

Laughlin,  J.  L.,  206. 

Law  (def.)  11. 

Law  Books;  arrangement,  54-59; 
in  a  pub.  liby.,  60-5;  diction- 
aries (Black,  Bouvier)  59-60. 

Law,  enforcement  (Whithall), 
135;  libs,  (assn.,  court,  gov't, 
dept,  private,  school,  state),  S, 
9;  libs,  list  of,  8;  libs,  reading- 
list,  345-46;  topical  outline, 
1-7;  "Lib."  7n;  assn.  of  St. 
Louis,  41;  in  legis.  ref.  81; 
Journal,  146,  169;  "Making 
and  Revision  of,"  68;  law 
liby.    wk.    problems,    346-47. 

Law-making,  defects  in,  69-72; 
Scientific,  2'.i\x\\ Statute  (Jones), 
72-72n;    reporting,     l4n;    re- 


porting CO.,  230n;  "law  study," 
38;  where  found,  81. 
Laws,  compilations  of:  agricul- 
ture, 153;  Australia,  135;  auto- 
mobile, loS;  Ballot  laws,  Amer. 
(lSSS-1910),  120;  banking, 
100;  benefit  funds,  107;  bud- 
get making,  100;  child  labor, 
98-9;  (1907),  120;  Commercial 
laws,  133;  compulsory  atten- 
dance, 120;  Co-operation  and 
marketing,  121;  convict  labor, 
158;  copyright,  135;  epileptic 
colonies,  157;  family  deser- 
tion and  non-support  laws, 
157;  farmers'  Institutes,  107; 
game,  102,  107;  Garnishment 
of  wages,  121;  illuminating 
gas,  272,  272n,  277;  Immigra- 
tion, Fed.  and  St.  Legis.,  98-9; 
Industrial  Educ,  102,  107; 
Ind.  Ins.,  133;  inheritance 
tax,  98-9;  insane,  care  of, 
122,  labor,  102,  116n;  list  by 
Hasse,  iq7n;  Local  gov't,  292- 
3;  marriage,  eugenics,  133; 
min.  wage,  foreign,  202-3, 
202n-203n;  min.  wage,  U.  S., 
200-1,  201n;  motor  vehicles, 
158;  navigable  waters,  123; 
nursing,  108;  occupational 
diseases,  122;  patents,  135; 
poisons  and  drugs,  108;  prison 
labor,  135;  prisoners,  treat- 
ment of,  145;  public  drinking 
cup,  108;  pub.  health  authori- 
ties, 278;  pub.  serv.  corps. 
154;  railroads,  154;  recreation, 
279;  road  laws,  108;  school 
laws,  108;  school  tax,  122; 
state  laws  in  fed.  docs.  101-09; 
strikes  and  lockouts,  115;  tariff, 
101;  tariffs,  foreign,  107;  taxa- 
tion, internal,  France,  116;  tax 
of  corps.,  109, 122;  trademarks, 
135;  where  noted,  229;  weights 
and  measures,  109,280;  work- 
men's benefit  funds,  102;  work- 
men's compensation,  109,  123, 
133;  workmen's  insurance,  134; 


Index 


453 


workmen's  ins.  Europe,  102; 
see  also  comparative  law;  also 
ordinances,  comp.  of. 

Laws,  editing  of,  230;  federal 
26-7;  in  force,  federal,  88; 
how  found,  27;  model,  156- 
158;  needed  in  a  pub.  liby, 
65;  omitted  from  compilations 
by  mistakes,  28;  state,  27-8; 
state  on  mun.  gov't.  263-4; 
see  also  legislation. 

Lawyer  and  legislator,  81. 

Lawyer's  co-operative  pub.  co., 
4n,  42. 

Lawyers'  ed.  U.  S.  Supreme 
Court  Reports,  17;  Lawyers' 
Reports  Annotated,  17. 

League  of  Amer.  Munic,  295, 
298n. 

Lee,  Joseph,  206. 

"Legal  Ethics,"  38. 

Legal  periodicals,  list  of  for  a 
pub.  liby,  64-5. 

Legislation,  Annual  Rev.  of,  151; 
comparative,  see  comparative 
legis.  "Current  Mun."  274, 
280;  Ethical  Gains  Through, 
134;  factory,  134;  social,  Ger- 
many, Eng.,  France,  Australia, 
Canada,  114;  N.  Y.  Year  Book 
of,  119;  pending,  status  of, 
215-7,  230,  230n;  to  be 
proposed,  source  for,  195-8; 
subjs.  of,  ref.  wk.  on,  75; 
trend  of,  197;  uniform  (in  U. 
S.),  154-6;  see  also  laws;  also 
comparative  legis. 

"Legislative  Apportionment" 
(Reed),  83;  Legis.  Buls.  (N. 
Y.)  382-83;  drafting  bur.,  209; 
drafting,  report  on,  231n; 
information  service,  230n;  in- 
vestigations, lists  of,  128,  (see 
also  investigations) ;  manuals, 
state,  123-4;  procedure,  see 
procedure,  legis. 

Legis.  Ref.  Bur.,  Amer.  Bar 
Assn.  reports  on,  170n;  hear- 
ings on  (U.  S.),  170n;  pubs. 
of,   118,   118n;   Putnam's   Re- 


port, 170n;  Thompson's  Re- 
port, 170n. 
Legis.  ref.  depts.  pubs.,  379-87; 
Cal.  379,  Conn.  380,  Ind.  380, 
la.  380,  Kan.  380,  Mass.  380, 
Mich.  380-81,  Mo.  382,  Neb. 

382,  N.    Y.    382-83,    N.    D. 

383,  Ohio  383,  Penn.  383, 
R.  L  386,  S.  D.  386,  Tex. 
386,  Vt.  386,  Va.  386,  Wis. 
387;  table  of,  384-85. 

Legis.  Ref.  Librarian,  qualifica- 
cations,  217-220;  217n,  393. 

Legis.  Ref.  Libs.,  acquisition  of 
material,  187-89;  classification 
and  cataloguing  in,  192n; 
organization  in,  170-87,  170n; 
(Ray),  139. 

Legis.  Ref.  Liby.  select,  81. 

Legis.  Ref.  Wk.,  appropriations 
for,  225-7;  table  of,  226;  basis 
of,  68-72;  bib.,  388-96;  Bills, 
394-95;  def.,  70;  desiderata, 
232-33;  laws,  list  393-94;  (full) 
texts,  347-65,  (Ala.  347,  Ga. 
347-48,  111.  348-50,  Ind.  350- 
51,  Mich.  351-52,  Neb.  353- 
54,  N.  H.  355,  N.  D.  355,  Ohio, 
356-57,  Oregon  357-58,  Penn. 
358-61,  R.  I.  361,  S.  D.  361- 
62,  Tex.  362,  Vt.  362-64,  Wis. 
364-65),  materials  of,  80  sq.; 
new  lines  of  wk.  proposed, 
230-31 ;  N.  Y.  St.  Liby.  School, 
220-21 ;  organization  (general), 
185-86;  organization  Indiana, 
171-73;  Penn.  184-86;  Wis. 
173-84;  origin  and  develop- 
ment, 72-80;  preparing  for  a 
session,  195-99;  "Present  Sta- 
tus," 75n,231n;  problems402; 
success  of,  224-5;  bill-drafting 
a  factor  in,  225;  tendencies  in, 
186,  228-33;  topical  outlines, 
66-67;  training  for,  217-224, 
217n;  111.  Univ.  Liby  School, 
221 ;  Wis.  Univ.  course,  221-3; 
without  specific  legis.  74;  by 
specific  legis.  74. 


454 


Index 


Legi>latiirc,  Wis.;  relation  to 
Icgis.  rcf.  dcpt.  176. 

Lejjislalures,  Amcr.  69-72,  71n; 
and  Legislative  Methods,  Anier., 
137;  synopsis  of  proceedings, 
90. 

Legk-r,  Henrv  E.,  253. 

Leon.  Morgand,  292. 

Lester,  C.  B.,  7on,  221. 

Lexington,  Ky.,  The  City  of 
Lexington,  303. 

"Libraries  in  L'.  S.  and  Canada, 
select  list  of,"  168;  of  the 
World,  leading,  168. 

Librarian  of  Congress,  Report 
relative  to  legis.  ref.  bur.  79, 
79  n. 

Library  Buls.  bibs,  in,  312-4, 
317-20,  321;  comms.,  indexes 
to  newspapers  170;  Journal, 
4.5n,   117,    146. 

Library  of  Congress,  127,  314; 
bibs,  on  Pol.  Sci.  and  Econ., 
list  of,  103n-105n;  division 
of  bib.,  IO.'mv.  card  nos.  for 
U.  S.  docs.,  Ill;  cards  for  law 
collection,  51,  53;  classifica- 
tion, 325;  classification  in 
legis.  ref.,  191-92;  depository 
cat.,  46,  46n;  docs,  state,  index, 
287;  law  collection,  149;  law 
division,  41,  52,  53,  53n;  legis. 
ref.  in,  proposals,  79;  hear- 
ings, 79,  79n,  80,  80n;  mun. 
docs,  in,  267,  283;  printed  card 
nos.  (  U.  S.  Cat).  163. 

Library  of  pub.  serv.  com.,  249n. 

Libv.  Schools,  mun.  ref.  wk.  in, 
338-9;  Wis.,  173. 

Lihy.  wk.,  58n. 

Life  and  Labor,  205. 

Lighthall,  W.  D.,  343,  343n. 

Lima,  Peru,  290. 

Lincoln,  Charles,  120n. 

Lincoln's  Inn,  41. 

Lisle,  John,  62,  63. 

Literary  Digest,  143. 

Liltle,'Brown  &  Co.,  42. 

Littleton,  29. 

Living  Wage,  Snowden's,  203. 


Loaning  Books,  58-9. 

Local  Acts,  263-4. 

Local  Gov't,    1740-1835    (Eng.), 

293;  law,  ency.  of,  292;  Board, 

cases  and  decisions,  292;  Board, 

280. 
Lombroso,  Cesare,  64. 
London,   304;    County   Council, 

304;  Times,  index,  169-70. 
Loose  Leaf  Digest,  264. 
Lorenzen,  Ernest  G.,  62. 
Los  Angeles,  charter,  275;  Mun. 
News     (des),   303,    mun.    ref. 

in  255;  pub.  liby,  255. 
Lowe,  373,  375. 
Lowrie,  S.  Gale,  254,  260. 
Luce  Clipping  Bur.,  161n. 
Luce,      Robert       (on      clipping 

bureaus),  161. 
Lumber  Industry',  doc.  on,  102. 

M.,  J.,  206. 
McAnenv,  Geo.,  256n. 
McCall,  'Samuel  \V.,  137. 
McCarthy,   Dr.   Chas.,  74,   139, 

174, 175, 176, 184, 198-99,217n; 

testimony  at  Wash.,  184. 
McClain,  19. 

McClelland,  Ellwood,  H.,  317. 
McDowell,  Mary,  203,  205. 
McElrealh,  Walter,  82. 
McFarland,  J.   Horace,  343n. 
McGovern,  Gov.,  184. 
MacGrcgor,   Dr.   Ford   H.,  243, 

243n,     261,    301,    316,     339; 

(quoted)  329. 
McKay,  K.  W.,  301. 
McKce,  T.  H.,  138. 
McLaughlin,  Andrew  C,  139. 
McClure's,  144. 
McKirdy,  Jas.,  212n,  217n. 
MacMorran,  Alex.,  292. 
MacMorran,  Kenneth  M.,  292. 
McXamara,  A.  K.,  27n,  53n. 
McOuillin,    Eugene,    275,    292, 

331,  332,  333n. 
McSweeney,  Edward,  206. 
Mac\'icar,  John,  343n. 
Macy,  332. 
Macy,  Jesse,  138. 


Index 


455 


Macy,  John  Edward,  292. 
Magazine    Indexes,    288;    Subj. 

Index,  32. 
Maine,    doc.    index,    126;    Icgis. 

ref.  in,  76. 
Maitland,  F.  W.,  13n. 
Malaria,  271n. 

Malloy  {Treaties),  25;  35n,  87. 
Maltbie,  W.  H.,  252. 
Man  and  Abnormal  Man,  98. 
Mann,  220. 
Manson,  Edward,  62. 
"Manuals  and  Registers,"  City, 

266n;  manuals,  council,  266. 
Manufactures  Bur.,  107,  271. 
Maps,  local,  308. 
Marks,   Marcus  M.,  206. 
Marriage,  laws  on,  155. 
Martindale,  45. 
Martinus  Nijhoff,  42. 
Marvin,  J.  G.,  39. 
Maryland,    legis.    ref.    in,   241n; 

law  403-04;  St.  Law  Liby,  41. 
Mason,  H.  A.,  302. 
Mason,  Herbert  D.,  294. 
"Mass.    and    the    Min.    Wage," 

206;     Bill-drafting     in,     171; 

370-71;     civic     league,     302; 

cold  storage  of  food,  comm.  to 

investigate,    120;    doc.    index, 

126;  Eff.  Comm.,  261n;  legis. 

procedure   in,    130;   legis.   ref. 

in,  74;  Pubs.,  380;  Liby  Com., 

170;  Manual,  129n;  Min.  wage 

in,  200-1;  Sen.  Rules,  ^10-1\; 

State  lib.,  41,  43,  73. 
Matches,  model  law,  156. 
Mathews,  J.  M.,  249n. 
May,  Sir  Thos.  Erskine,  130. 
Mayors'  Conf.    in    N.  Y.,    251; 

messages,  265. 
Medical    Benefit;    Germany    and 

Denmark,  A   study  of  the  Ex- 
perience of  (des),  134. 
Medical    Educ.    in     U.    S.    and 

Canada,  146. 
Memphis    Comm.    Gov't.,    303; 

mun.  ref.  in,  255-6;  mun.  res. 

pubs.,  419. 
Merriam,  C.  E.,  140,  248,  253n. 


Mews'  Eng.  Case  Law  Digest,  22, 

Mexico  City,  290. 

Meyer,  Ernest,  270n. 

Meyer,  H.  H.  B.,  105n. 

Michigan,  bill-drafting  in,  171 
constitution  of  1850,  83;  1907 
84;  legis.  man.,  123;  legis.  ref 
in,  74;  min.  wage  in,  200-01 
municipalities,  league  of,  302 
St.  Law  Libv,  12,  41,  320 
law  351-52;  pubs.  380-81 
univ.,  mun.  ref.  in,  244,  260. 

Middle  Temple,  41. 

Midland  Municipalities,  298n. 

Miles,  Rufus  E.,  254. 

Milk  and  Pub.  Health,  272;  care 
of,  271n.;  supply,  Chicago, 
272;  Wash.,  272. 

Millar,  Robt.  W.,  62,  64. 

Miller,  W.  G.,  13n. 

Milton,  ].  P.,  2.53n. 

Milwaukee,  330,  341;  Bur.  of 
Econ.  and  Eff.,  121,  242,  242n, 
243n,  341,  342n;  Hist,  of, 
301;  origin,  247;  pubs.  419- 
20,  mun.  ref.  appropriation, 
341;  mun.  ref.  in,  255;  or- 
dinance 412-14;  mun.  res.  in 
242,  246n;  ordinance,  414-16; 
pubs.  419-20,  papers,  index, 
170;  pub.  liby,  242-3;  mun. 
ref.  branch,  255. 

Mines,  Bur.  of,  273. 

Min.  wage,  200-8;  bib.,  203-07, 
203n-07n;  citations  to  st. 
laws,  201n;  foreign  laws,  202- 
03,  202n-03n;  negative  ref., 
205-07;  states  having  laws, 
200-01. 

Minneapolis,  mun.  ref.  in,  256. 

Minnesota,  Eff.  Comm.,  261n; 
legis.  manual,  123;  legis.  ref. 
in,  76;  Legislature  of  1909,  136; 
Legislature  of  1911,  137;  min. 
wage  in,  200-01,  201n;  univ., 
mun.  ref.  in,  244,  260. 

Miraglia,  Luigi,  63. 

Mississippi,  legis.  ref.  in,  76,  79. 
Missouri,  legis.  ref.  pubs.  382. 
Mitchell,  J.  G.,  254. 


450 


Index 


Mittormaier,  C.  J.  A.,  62. 

Model  By-laws  2S0;  "Charters," 
270;  clauses  in  bills,  233n; 
laws,  156,  15S;  laws,  auto- 
mobile, 158;  ordinances,  277, 
280. 

Modern  Criminal  Science  Series, 
61,  64,  150. 

Modern  Legal  Philosophy  Series, 
61,  63. 

Moll,  A.  A.,  278. 

Monthly  Catalogue,  188,  288,  322, 
(des)',  111,  112,  147. 

Money  and  banking,  docs,  on, 
100" 

Montana,  legis.  ref.  in,  74, 

Monthly  list  of  State  pubs.,  147. 

Moore,  J.  B.,  35,  35n,  88. 

Moreno,  Alejo  Garcia,  152. 

Morgan,  J.  E.,  142. 

Moritz,  Eugen,  259n. 

Motion  pictures,  277. 

Mudge,  Isadora  Gilbert,  92,  168, 
301n. 

Miihlbrecht,  Otto,  39. 

Munich,  304. 

Mun.  accounting,  Ohio,  269; 
Administration  and  Account- 
ing, 246n;  affairs,  298,  309, 
310;  aff.  current  information 
sources,  321-23;  affairs,  federal 
burs,  interested  in,  270,  270n, 
343,  343n;  affairs  national  bur. 
interested  in,  270;  st.  control 
of,  269-70;  code,  265;  corp. 
acts,  292;  corp.  cases,  1900- 
1904,  llv.,  18,  332;  corp.  law, 
331-32;  law  books  on,  291-93; 
corp  law,  case  books,  332. 

Mun.  Development  Mag.,  305; 
(Iocs.,  Amer.,  266;  Eff. 
Comms.,  247,  248,  247n,  248n, 
2.")ln;  Engineering,  144,  299, 
322;  finance,  Mass.,  269;  Ga- 
zettes, 303n;  gov't  and  Admin, 
books  on,  288,  291;  gov't, 
delegated  power  only,  262, 
"index,"  323;  Journal,  Lon- 
i\i)n,  299;  Journal,  X.  V.,  299; 
Journal    and    Engineer,     144, 


299,  322;  "Library  and  the 
Legislator,"  242n;  lighting 
plant  recommended  to  Kan- 
sas City,  340;  lodging  house 
306-07;  markets,  doc.  on,  121 
museum,  N.  Y.,  336,  337n 
ordinances,  331. 

Mun.  Ref.  Librarian,  qualifica- 
tions, 217n,  333-39, 428;  train- 
ing, 333-39. 

Mun.  Ref.  Libys.  234-343;  and 
archives,  251n;  Bib.  423-31, 
classification  in,  324-26;  for- 
eign, 259;  pubs.  416-23;  pur- 
pose, 237-8;  topical  outline, 
234-37;  as  a  business  invest- 
ment, 328. 

Mun.  Ref.  Service,  in  legis.  ref. 
wk.,  232,  245-6. 

Mun.  Ref.  Wk.,  234-343;  ap- 
propriations 341;  by  national 
or  federal  bur.  250;  desiderata, 
342-43;  future  possibilities, 
342-43;  in  Indiana,  172-73;  in 
Universities,  259-61;  mate- 
rials, 261;  need,  238-39;  Or- 
dinances and  laws,  list,  428-29; 
texts,  403-16;  (Bait.  403-04, 
Chi.  404-07,  Cin.  407-09, 
Kansas  c.  410-12,  Milw.  412- 
16,  St.  Louis,  416) ;  origin  and 
development,  237-61;  origin, 
Baltimore,  240;  problems  431- 
33;  purpose,  237-38;  scope, 
239^0;  staff  needed,  334-36; 
success  and  support,  339-42; 
table  of  cities,  251-61;  train- 
ing for,  336-39. 

Mun.  Reform  and  Reformers, 
297;  Research  and  Reference 
wk.,  24&-47,  251-61;  research 
bureaus,  246-47,  246n-47n; 
(arts,  on)  429-31;  mun.  res. 
bur.  pubs.  416-23;  (Bait.  416, 
Chi.  416-lS,  Cin.  418,  Davton 
418-19,  Kansas  Citv  419, 
Memphis  419,  Milw.  419-20, 
New  York  420-22,  Phil.  422, 
St.  L.  421,  Univ.  of  Cal.  422, 
of  Tex.    422,   of   Wash.    422, 


Index 


457 


of  Wis.  423),  research  in  other 
cities,  251n. 

Mun.  Res.  Bur.,  in  Universities, 
243-45,  243n-45n. 

Mun.  Res.,  table  of  cities,  251- 
61;  revenues  in  Illinois,  301 
statistical  offices,  303n;  statis- 
tics, 303n,  312;  utilities,  294 
Yearbook,  1902,  295;  Yrbk 
of  the  U.  Kingdom,  295;  Yr 
Bks.,  294-96;  World,  302. 

Municipalities,  Dept.  of,  pro- 
posed, 250. 

Municipality,  301. 

Munro,  William  Bennett,  140, 
246n,  2.59,  262,  262n,  276,  289, 
297n,  298,  314,  317,  331,  331n, 
333n;  Guide  311,  quoted, -246, 
275. 

Muscogee  (Creek),  124. 

Myers,  P.  H.,  247n. 

Nachtmann,  Mrs.  Alice  New- 
man, 321. 

Nation,  143,  322. 

National  Anti-Sweating  League, 
204n,  205;  Assn.  of  Railway 
Commrs.  Proceedings  (des), 
154;  Assn.  of  State  Libraries, 
37n,  212n;  Bibliography,  166; 
Board  of  Censorship  of  Motion 
Pictures,  277;  Board  of  Fire 
Underwriters,  156,  280; 
Bureaus,  interested  in  Mun. 
AfT.  250,  270-73,  342-43; 
Child  Labor  Committee,  145; 
Civic  Fed.  Rev.,  300;  Com- 
mittee for  Mental  Hygiene, 
134;  Conference  of  Charities 
and  Corrections,  Proc.  144; 
Conventions  and  Platforms, 
1789-1905,  138;  Dept.  of  Mun- 
icipalities, 343,  343n;  Edu- 
cation Assn.,  Proc.  and  Ad- 
dresses, 145;  Monetary  Com- 
mission, 100;  Mun.  League, 
241n;  276,  295,  297,  343;  Mun. 
League  "Municipal  Program" 
264-64n;  Mun.  League 
(quoted)  333,  334;  Mun.  Rev., 


128,  173,  188,  229,  274,  280, 
286,  286n,  287,  299,  321,  322, 
—  des.  165,  311;  —  docs,  in 
285-86;  Prison  Assn.,  Proc, 
145;  Progressive  Party  Legis. 
Ref.  wk.,  250-51;  Progressive 
Party,  M.  R.  wk.,  250-51; 
Progressive  Service  of  the 
Prog.  Party,  261n;  Reporter 
System,  (des),  16-17;  Retail 
Dry  Goods  Assn.,  207;  Tax 
Assn's  Annual  Conference  on 
state  and  local  Taxation,  145. 

Nebraska,  Bill  drafting  in,  171; 
Legis.  Procedure  in,  130; 
Legis.  ref.  appropriation,  226; 
Legis.  R.  in,  76-77,  230-231, 
232;  law,  353-54,  pubs.  382; 
Min.  wage  in,  200-01,  201n; 
Mun.  Ref.  in,  245;  Munici- 
palities, 298n;  State  Histori- 
cal Society,  76;  Univ.  of,  77. 

Negotiable  Instruments  Law, 
155. 

Nelson,  Congressman,  79n. 

New  England  Town  Law,  291. 

New  Freedom  (Wilson),  140. 

New  Hampshire,  Bill-drafting  in, 
171;  doc.  index,  126;  legis.  ref. 
in,  74;  law,  355. 

New  Haven  Public  Lib.,  313. 

New  Jersey  —  Charities  and 
Corrections,  Dept.  of,  122; 
Eff.  Comm.  261n;  Legis.  ref. 
in,  76. 

New  York  (State) ;  Bill-drafting 
in,  171;  laws  371-72,  Con- 
stitutional Convention  Manual, 
83;  Constitutional  Convention, 
1894.  Manual  (des),  87;  doc. 
index,  126;  Eff.  Comm.  261  n; 
Legis.  Manual,  123;  Legis. 
ref.  in,  74;  pubs.  382-83,  be- 
ginning of  legis.  ref.  in,  73-74; 
N.  Y.  Mayors'  Assn.,  302; 
Minimum  wage  in,  200-01; 
Pub.  Serv.  Com.,  First  Dist. 
Classification  in  lib.,  191; 
State  Factory  Investigating 
Com.,  204;  State  Law  Library, 


458 


Index 


41;  State  Legis.  Ref.  Bureau, 
Classification  in.  190-91;  St. 
Lib.,  73,  225,  274;  St.  Lib., 
Classification  in,  o0-51;  St. 
Lib.  Legislation  Bulletins,  119; 
St.  Lib.  School,  220-21,  338. 
New  York  (City);  New  York, 
30."),  330;  Bureau  of  Mun.  Res., 
24t>-47,  246n^7n,  251n,  342n; 
pubs.  420-22;  Charter,  275; 
City  Club,  304;  The  City 
Record,  303;  Docs,  of,  284; 
Manuals,  indexes,  282;  Mun. 
Gov't.  Assn.,  302;  Mun.  Ref. 
in.  256;  Public  Librar\-,  125, 
127,  204,  205,  256,  319,  320; 
Public  Library  Bulletin,  283- 
85,  287,  322;  Pub.  Lib.  Mun. 
docs,  in,  267,  2S3;  Public 
Service  Com.  Library  19.5; 
School  of  philanthropy  Li- 
brary. 318;    Year  Book,   296; 

New  York  Daily  Tribune, 
Index,  169;  Department  Re- 
ports, 21;  Law  Journal,  19; 
Libraries,  docs,  noted,  117; 
Libraries,  doc.  list,  127;  Sup- 
plement, 17;  Times,  Index,  146, 
170. 
New  South  Wales,  Bill-drafting, 
376-77;   Min.  wage  law,  202. 

New  Zealand,  Min.  wage  law, 
202;  Regulation  of  Labor  in, 
205. 

Newark,  Mun.  Ref.  in,  257; 
Public  Library,  257. 

Newfoundland,  bill-drafting  in, 
376. 

Newman,  T.  H.,  83. 

Newport,  R.  L  Civic  League 
Bulletin,  304. 

News  and  notes  of  California 
Libraries,  doc.  list,  127;  docs, 
noted,  117. 

Newspaper  indexes,  169-70. 

Nichols,  Egbert  Ray,  204,  205, 
2(J6. 

.Nijhoff,  Martinus,  42. 

Nolen,  John,  279. 

Non-Statutory  law,  def.,  11. 


North  American  Review,  144. 

North  Dakota  Bill-drafting  in, 
171;  legis.  ref.  in,  78-79;  law, 
355,  pubs.  383. 

Northeastern  Reporter,  16. 

Northwestern  Reporter,  16. 

Northwestern  University  Law- 
School,  149. 

Norwalk,  Civic  League,  305. 

Notation,  not  needed  in  law 
libraries,  47. 

Nursing,  doc.  on,  108. 

Oakland  Mun.  Ref.  in,  242;  257; 

Pub.  Lib.  Report,  1912,  257n. 

Occupational  Diseases,  doc.  on, 

122. 
Oesterreichisches  Stddtebuch,  296. 
Ohio  Bill-drafting  in,  171; 
Constitutional  Conv'ention,  83; 
doc.  index,  126;  State  Board  of 
Health,  Annual  report,  270; 
Legis.  ref,  appropriation,  226; 
legis.  ref.  in,  232;  law  356-57; 
pubs.  383;  library  commission, 
legis.  ref.  by,  78-79;  mini- 
mum wage  in,  200-01;  Mun. 
Assn.,  302;  State  Grange,  207; 
Supreme  Court  Law  Library, 
41,  60. 
Oklahoma,   Constitution  of,  82; 

Red  Book  (des),  123-24. 
Old  Age  Dependency,  140. 
Omaha,     Mun.     Eff.     in,     257; 

Mun.  Statistics,  303. 
Ontario,     Mun.    Gov't,    in,  301; 

Mun.  Organization  in,  301. 
"Order   and    Accession    Depart- 
ment,"  (Hopper),  189n. 
Order  department.  Arts  on,  45n. 
Ordinances,   Comp.   of,   276-80; 
Building     Codes,     276;     City 
Planning,   277;    Curfew,   277; 
Garbage       Collection,       277; 
Height     of     Buildings,     277; 
Illuminating  Gas,  277;  Motion 
Pictures,       277;       Municipal 
Courts,    278;    Public    Health, 
272,    272n,    278;    Recreation, 
279;    Sanitation,    272,    272n; 


Index 


459 


Sidewalks,  279;  Smoke  Pre- 
vention, 279;  Street  lighting, 
279;  Weights  and  measures, 
280;  See  also.  Laws,  Comp.  of. 

Ordinances,  current,  280;  (def.) 
264-65;  drafting;  330-32, 
aids  in,  331;  drafting  of,  239- 
40;  (McQuillin  on),  292; 
Model,  277,  280;  on  Mun.  ref. 
wk.  (des),  241-42;  Police,  291; 
See  also,  drafting  of  ordin- 
ances;  also   Bill-drafting. 

Oregon  legis.  ref.  in,  law,  74; 
357-58,  Min.  wage  in,  200-01, 
201n;  "Popular  Gov't  in", 
(Bourne),  167;  Univ.,  Mun. 
Ref.  in,  244,  260. 

Organized  labor,  demands  of, 
197. 

Osage,  124. 

Osterhout,  Pub.  Lib.  (Wilkes- 
Barre),  319. 

Ostrogorski,  M.,  137. 

Outlook,  143. 

Owen,  Senator,  79,  79n. 


Pacific  Coast  Assn.  of  Fire  Chiefs, 

299n;  Municipalities,  280,  302; 

Reports,  16. 
Palgrave,  131. 
Palmer's    Index    (Lond.    Times) 

169-70. 
Pamphlet    Boxes,    88,     194-95; 

(Lapp),       195;        "Pamphlet 

laws,"  27. 
Pamphlets,    filing    of,   _194-95; 

in    legis.    ref.    wk.,    157-S;    in 

mun.  ref.  work,  306. 
Pan-Amer.    Union,     Bulletin, 

290. 
Pandex  of  the  News,  1908,  (des), 

170. 
Paquette  Habana  (quoted),  29n. 
Paris,  France,  304;  mun.  ref.  in, 

259;  statistics,  296. 
Park    and    Cemetery   and  Land- 
scape Gardening,  299. 
Parkinson  Thomas  L,  209,  212n; 

(quoted)  209. 


Park,  Orville  A.,  31. 

Parliamentary  Counsel  for  the 
Treasury,  80,  378-79,  (des), 
373-74;  Salarv,  227;  Debates, 
207;  Law,  129-130;  law,  com- 
parative, 213;  law,  English, 
130;  law,  see  also  Procedure 
(legislative);  Papers,  British, 
where  noted,  indexes  to,  Pur- 
chase of,  114-15;  Procedure, 
British,  80. 

Parmelee,  Maurice,  141. 

Parsons,  269. 

Partnership  Act.  155. 

Party  Platforms,  1912  (Ray) 
138-9. 

Pasadena,  Mun.  Ref.  in,  257. 

Patents  Commissioner,  Decisions 
of,  19,  34n. 

Patton,  John  W.,  211-12. 

Pending  Legislation,  Status  of, 
215-17,  230, 230n. 

Pennsylvania,  Bill-drafting,  171; 
doc.  list,  127;  Efficiency  Com., 
261n;  Election  laws.  Com- 
mission to  Revise  and  Codify, 
121;  Historical  Society,  44; 
Law  School,  211-12;  legis. 
man.,  123;  legis.  ref.  appro- 
priation, 226;  legis.  ref.  dept., 
227;  appropriation,  185;  legis. 
ref.  dept.  organization,  184- 
86;  legis.  ref.  in,  76;  laws 
358-61;  pubs.  383,  State  Li- 
brarv,  41. 

Pensions,  (Squier),  140;  teachers, 
145. 

People's  Institute,  250,  261n. 

Periodicals,  for  the  small  library, 
143n;  in  legis.  ref.  wk.,   143- 
47;  in  mun.  ref.  wk.  297-305; 
legal,  list  of,  31;  legal,  Shelf- 
arrangement,    57;    Municipal, 
Classification,  297-98;  on  mun. 
aff.  best,  322. 
Petroleum    Industry,    doc.    on, 
102;   Transportation   of,   doc. 
on,  102. 
Petzholdt,  320. 
Phelps,  E.  M.,  142. 


460 


Index 


Philadelphia,  303,  341;  Bur.  of 
Mun.  Res.,  342n:  pubs.  422; 
City  Club  of,  304;  mun.  ref. 
in,  257;  mun.  res.  in,  246n. 

Philbrick.  Francis  S.,  62. 

"Photostat,"  392. 

Pic,  Paul,  135. 

Pinanski,  A.  E.,  249n. 

Pittsburgh,  Carnegie  Library, 
319.  320;  Bulletin,  322;  Civic 
Bulletin,  304;  docs,  of,  285; 
mun.  ref.  in,  257;  Year-Book, 
296. 

Platforms,  Political,  197. 

Playground,  299. 

Plunkett,  Martin  F.,  258. 

Poisons  and  Drugs,  doc.  on,  108. 

Police,  293;  Ordinances,  291; 
"Scandal,"  238n. 

Political  Movements  and  Ten- 
dencies (books  on),  139;  Par- 
ties, 197. 

Political  Science  Quarterly,  145, 
(des),  166,  198,  300. 

Pollock,  Sir  Frederick,  12n,  14n, 
16. 

Poole's  Index,  32. 

Poor  Law,  292;  Administration, 
133. 

Poore,  Benjamin  Perley,  83; 
(des),  110. 

Portland,  Me.,  305. 

Portland,  Oregon,  305;  Public 
Librarv',  318,  319;  mun.  ref. 
in,  242,  257. 

Potter,  Marion  E.  163,  312. 

Precedents,  parliamentary,  129- 
130. 

President  of  the  Senate,  89,  214; 
of  the  U.  S.  on  Leg.  Ref.  wk., 
224. 

Presidential  succession,  Laws  as 
to,  123. 

President's  Commission  on  Econ- 
omy and  Efficiency,  93,  93n, 
100,  226,  261n,  307;  Homes 
Commission,  99,  273,  273n; 
Message,  119. 

Prevention  of  Crime  Act,  1908 
(Quinton),  141. 


Price  List,  Canadian  docs.,  115; 
of  U.  S.  docs.,  112. 

Price,  Richard  R.,  244n,  260. 

Prices,  Doc.  on,  98. 

Primary  Elections,  140. 

Printed  Cat.  Cards,  Lib.  of 
Congress,  52. 

Prison  Labor,  platform  provi- 
sions, 135. 

Procedure  in  city  councils,  332- 
33,  333n;  in  State  Legisla- 
tures, 212n;  (legislative),  130, 
212-17,  212n;  in  manuals, 
123;  on  Private  Bills,  England 
(Spencer),  293. 

Progress,  Atlanta,  305. 

Progressive  Houston,  302;  Legis- 
lation, 197;  Prog.  Nat.  Serv. 
Legis.  Ref.  Bur.  Gen.  Inf. 
Bulletin,  201n;  Party,  261n. 

Prohibition,  Oklahoma,  123. 

Providetice,  Board  of  Tr.  Jr.,  305; 
City  Library,  282;  Public 
Library,  321. 

Public,  144,  300;  Affairs  Infor- 
mation Serv-ice,  128,  173,  287; 
Bulletin,  188,  230;  (des),  228- 
29;  documents  (def.),  33; 
Drinking  Cup,  doc.  on,  108; 
Libraries,  45n,  117,  146;  "Li- 
braries, as  a  factor  in  Civic 
development,"  241;  Library, 
Law  Books,  60,  65;  Health, 
293;  Health  and  Marine  Hos- 
pital Service,  272n;  Health 
Reports,  272-72n,  280;  Health 
Ser\-ice,  272;  Officials  Mag., 
305;  Service,  144,  300;  Service 
Commission,  Library,  N.  Y., 
195;  Com'ns,  249,  249n; 
Service  Commission,  reports 
received,  128,  128n;  Service 
Corporation  Valuation,  249, 
49n;  Utilities,  293;  Utilities 
in  N.  v.,  269;  Welfare  Board, 
Kansas  City,  255. 

Publishers  and  Dealers  (law 
books)  list  of,  41-42;  Directory, 
146,  168;  Weekly,  146,  322; 
(des),  164. 


Index 


461 


Purchase,  323;  in  legis.  ref.  wk., 

189;  law  books,  46._ 
Purdue  University,  172. 
Putnam,  Dr.  Herbert,  45n,  79n; 

(quoted),  159. 

Quarterly  Index  to  the  N.  Y. 
Times,  146;  Journal  of  Econ- 
omics, 145,  300,  (des),  166; 
index,  169;  List  of  Official 
Pubs.,  114. 

Quarterly  list  of  Parliamentary 
Pubs.  114. 

Queensland,  Bill-drafting  in,  377; 
min.  wage  law,  202. 

Quinton,  R.  F.,  141. 

Rabies  or  Hydrophobia,  271  n. 

Railroads,  laws,  154. 

Raines,  C.  W.,  44. 

Ranck,  Samuel  H.,  241. 

Ransom,  \Vm.  L.,  140. 

Rastall,  B.  M.,  247. 

Rawlinson,  Sir  Christopher,  292. 

Ray,  P.  Orman,  138. 

Raynaud,  Barthelemy,202n,203, 
204,  206. 

Readers'  Guide,  32,  143n,  146; 
(des),  168;  use  with  clippings, 
160;  {Abridged)  docs,  noted 
in,  113;  and  Supplement,  143n, 
146,  (des),  169. 

Reading,  Pa.,  mun.  ref.  in,  258. 

Redlich,  Josef,  289. 

Reece,  E.  J.,  116n,  117n,  127. 

Reed,  Alfred  Z.,  83. 

Reference    and    Research    work 
in  legis.  ref.  libs.,  185-86;   in 
legis.  ref.  libs,  min.  wage  law 
as  an  illus.,  199-208;  in  Wis. 
legis.  ref.  dept,  174  sq.;  work, 
legal,     10-11;     on     subjs.     of 
legis.,  75. 
Referendum  in  Switzerland,  134. 
Reform  Organizations,  298. 
Reichsgericht,  Leipsic,  41. 
Reichsjustizamt,  41. 
Reichstag  liby.,  41. 
Reinick,  Wm.  R.,  117. 


Reinsch,  Dr.  Paul  S.,  117,  137, 

167,  212n,  366n. 
Remedies    for    defective    legis., 

69-72. 
Reporters,    court,    citation    by 

name  of,  55. 
"Research  and  Reference  Bur." 

341. 
Research  work,  legal,  10-11. 
Responsibility,   individual,   lack 

of,  in  legis.,  69. 
Retail  prices,  102n. 
"Review    of  Labor  Legis."    198; 
R.  of  Legislation,  197-98,  274; 
R.  of  Reviews,  144. 
Revised  Reports  (des),  18;  Stat- 
utes (U.  S.),  27. 
Revisers  of  bills,  Vt.  363. 
Revista    de   los    Tribunales   y   de 

Legislacion    Universal,  152. 
Revue  Communale,  299;  de  Droit 
International  et  de  Legislation 
comparee,  153;  de  Science  et  de 
Legislation    Financieres    {des) , 
166;    des    Sciences    Politiques 
(des),   166;  Economique  inter- 
nalionale  (des),   166;   Generale 
du  Droit,  153. 
Rex,  Frederic,  253n,  312. 
Reynolds,    Jas.    B.,    249n,    286, 

315;  Civic  Bib.  (des),  316. 
Rhode   Island,  doc.   index,   126; 
legis.  ref.  appropriation,  226; 
legis.    ref.    in,    74,    75,    75n; 
law,  361;  pubs.  386;  St.  Liby., 
classification    in,    191;     filing 
methods,   195;   legis.   ref.   wk. 
in,  185. 
Richards,  Clara  A.,  175n. 
Rio  de  Janiero,  290. 
Road  Laws,  doc.  on,  108. 
Roads,  294. 
Robbins,   E.   C,   141,   142,  291, 

316. 
Robinson,  W.  C,  12n,  24n. 
Rockford,  (III),  pub.  liby.,  319. 
Rodriguez,  Jose  Ignacio,  86. 
Rogers'  Citations  (111),  23. 
Roosevelt,  Theodore,  140. 
Roumania,  min.  wage  law,  203. 


462 


Index 


Rowe.  Leo  Staunton,  289. 

Royal  Statistical  Soc.  Journal, 
docs,  noted,  116. 

"Rules  for  the  Drafting  Room," 
Wis..  ISl. 

Rural  Educ.  in  U.  S.,  106. 

Russell,  29. 

Russel  Sage  Foundation,  Div. 
of  Educ,  135;  div.  of  Recrea- 
tion, 317. 


Sacramento,   Mun.  Gazette,  303. 

Sage,  L.  H.,  58n. 

St.  Joseph,  pub.  libv.,  313. 

St.  Louis,  306,  324,  327;  charter, 
275;  Civic  League,  248,  304; 
mun.  ref.  in,  238,  242,  258, 
286;  pubs;  422,  Resolution, 
416;  pub.  libv.,  242n,  .306-07, 
318;  Annual  'Report,  1911-12, 
(quoted)  23Sn;  BuL,  322. 

St.  Paul,  mun.  ref.  in,  2.58. 

Sait,  Edvsard  M.,  251n,  259,  341. 

Salaries  in  legis.  ref.  wk.,  see 
appropriations. 

Saleilles,  Raymond,  64. 

Salem,  (Mass.)  pub.  libv.,  313. 

Salmond,  J.  W.,  13n. 

Salvio,  Alphonso  de,  64. 

San  Francisco,  charter,  275; 
earthquake,  273;  law  liby., 
41;  mun.  ref.  in,  258;  Mun. 
Record,  303. 

Sanderson,  John  F.,  136,  212n. 

Sanford,  Jas.  A.,  230n. 

Santiago  de  Chile,  290. 

Schaffner,  Margaret  .\.,  275. 

"Schedule  of  Volumes,"  95. 

Scholefield,  Joshua,  ed.,  292; 
Encyclopedia,  292. 

School  tax  laws,  doc.  on,  122. 

Schurmann,  Ernst,  310. 

Scott,  .Mrs.  E.  F.,  63. 

Scott.  (;.  W.,  27n,  29n,  53n.; 
Henry  W.,  14n,  278;  Jas. 
Brown,  19. 

Scranton,  Pa.,  305. 

Scribner's,  144. 

Sears,  29. 


Seattle,  77;  Mun.  League  News, 
305;  mun.  ref.  in,  258;  Mun. 
News,  303;  pub.  liby.,  313, 
318. 

Second  Reading,  214. 

Secrecy  in  bill-drafting,  Wis., 
178. 

Sec'y  of  State,  as  exchange  agt. 
for  laws,  46. 

Sells,  269. 

Senate  Doc.  Room,  94;  docs.  96; 
suitable  for  legis.  rf.  wk., 
annotated  list  of,  96-100: 
Journals,  94;  Manual,  \j.  S., 
129,  129n;  Reports,  94;  Re- 
ports (des),  96;  U.  S.  from 
1907-1912,  137;  Rules,  130. 

Senators,  U.  S.  election,  142. 

Serial  No.,  91,  91n;  for  U.  S. 
docs.,  intro.  of,  112;  when 
dropped,  95;  pubs,  in  mun. 
ref.  wk.,  297-305. 

Session  laws,  26;  federal,  27; 
stumbling  blocks  and  pitfalls 
in,  43n. 

Sewage  Pollution,  279. 

Sewers,  294. 

"Sham  Universities,"  146. 

Shame  of  the  Cities,  238n. 

Shanghai,  China,  304;  Mun. 
Gaz.,  303. 

Shaw,  A.  B.,  73. 

Sheep  Set,  93-96. 

Shelf-arrangement,  in  law  libs., 
54-.59;  state  as  unit,  54;  form 
of  pub.  as  unit,  5.5-59. 

Shelving  in  mun.  ref.  wk.,  328. 

Shepard's  citations,  23. 

Sherbrooke,  Lord,  373. 

Short  Ballot  Charters,  264,  275, 
290,  315;  organization,  299n. 

Short  title  cards,  suggested,  54. 

Shortt,  Adam,  301. 

Shultz,  Birl  E.,  139,  167. 

Signatures  on  bills,  214. 

Signet  Liby,  Edinburgh,  41. 

Sikes,  Geo.  S.,  248n,  253n. 

Silbergleit,  Heinrich,  259n,  303n. 

Simpson,  John,  62. 

Singer,  Berthold,  135. 


Index 


463 


Situs  of  real  and  personal  prop- 
erty for  purposes  of  taxation, 
155. 
Six    Years  of  Mun.  Res.  for    N. 

Y.  City,  247n,  251n,  341. 
Slavic  countries,  legis.  of,  151. 
Slip  laws,  federal,  26-27;  state, 27; 

list  of,  27n. 
Smith,  Jeremiah,  292;  John  Wil- 
son, 292. 
Smithers,  Wm.  W.,  147. 
Smoke  Prevention,  273. 
Smull  (Penn.  Manual),  123. 
Snowden,  203,  207. 
Snyder,  Henry  G.,  82. 
Social  Conditions  N.J.  (doc.  on), 
122;  Wash.,  doc.  on,  (des)  99. 
Societe  de  Legislation  Comparee 
Annuaire   (des),   150;  Bulletin 
Mensuel  (des),  151;  de  Statis- 
tique  de  Paris,  Journal,  docs, 
noted,  116. 
Society    of    Comparative    legis- 
lation, 376;  Journal,  (des),  151; 
docs,  noted  in,   115;  of  Icon- 
ophiles,  282;  Society  Proceed- 
ings in  legis.  ref.  wk.,  143-57; 
in  mun.  ref.  wk.,  297-305. 
Somerville,    (Mass.),    pub.    liby. 

313. 
Soule,  Chas.  C,  39,  60. 
Sources    of    information,    in    re 

new  pubs.,  187-88. 
South  Australia,  bill-drafting  in, 

377;  min.  wage  law,  202; 
South     Carolina,     bill-drafting, 
laws,  372-73;    legis.  ref.    pro- 
posed, 232. 
South    Dakota,   bill-drafting  in, 
171;  legis.  ref.  in,  74;  law  361- 
62,  pubs.,  386. 
Southeastern  Reporter,  16. 
Southern  Hist.  Assn.,  44. 
Southern  Reporter,  16. 
Southwestern  Reporter,  16. 
Spain,  legis.  of,  152. 
Speaker  of  the  House,  89,  214. 
Special  Libs.,  113,  128,  146,  173, 
188,  190n,  229,  287,  300,  322; 
Assn.,  37n;  report  on  clipping 


bur.,  159-60;  bibs,  in,  315; 
classification  and  cataloguing, 
192n;  (des)  166;  L.  C.  Bibs, 
in,  104n,  105n;  (Dudgeon  on) 
217n. 
Special  Librarian,  best  training 

a  debated  question,  219. 
Spence,  Mrs.  F.  H.,  134. 
Spencer,  F.  H.,  293. 
Spiegal,  Frederic  S.,  63. 
Spokane  Official  Guide,  303. 
Squier,  Lee  Welling,  140. 
Stammhammer,  Josef,  40,  163. 
Stammler,  Rudolf,  63. 
Standards,  Bur.,  272,  277,  280. 
"Standard   Oil   Case,"   decision, 

35. 
State,   dept.   of,  271;   docs.,  in- 
dexing of,   230;   Eff.   Comm., 
261n;     Gov't,      Readings     on, 
(Reinsch),    117;    Lib'y.,    230; 
lib'y  employees,    Penn.,    185; 
Ofificers,  recommendations  of, 
197;   pubs.,   322;   State   Pubs. 
(L.  C.)  Mo.  List  of,  127,  147, 
188,  287;  state  constitutions, 
see  constitutions,  state;  Govt. 
Amer.   (Reinsch),   167;   Insur- 
ance,   Wash.    (doc.    on)   122; 
lib'y,  Calif.,  74;  libs.,  75;  libs, 
legis.     ref.     in,     72-76;     libs., 
original  purpose,  72-73;  pubs., 
(Bowker),  125;  school  system, 
doc.  on,  108;  universities,  106. 
State,  The,  Wilson,  137. 
"Statistical  Compilations,"  296. 
Statistics  bureaus,  arts  on,  430- 
31,  of  Cities,  271,  271n,  295; 
mun.  burs.,  303-04,  303n. 
Statistisches   Jahrbuch,    295;    der 

Stadt  Berlin,  296. 
Statute  law  (def.),   11-12;  shelf 
arrangement,  54-57;   see  also 
code;  law;  laws;  compilations 
of;  legislation. 
Statutes,   27;   see   also   laws,   at 
Large,    26,    27,    87;    htdex   to, 
27,  27n. 
Steel  Industry,  doc.  on,  102. 
Steffens,  Lincoln,  238n. 


404 


Index 


Stein.  320. 

Stevens  &  Havnes,  42;  &  Sons, 

42;    Frank, '255:    Rob't    L., 

fund,  255. 
Stimson,  Frederic  J.,  84. 
Street,  Arthur  L.  (Pandex),  170. 
St.  Rail' y  Journal,  299;  Rev.,  299. 
Strikes  and  Lockouts,  doc,  on, 

102;  British,  115. 
Subj. -headings,     clippings     filed 

by.  160;  in  Icgis.  ref.  wk.,  232; 

Wis.,   193;  in   mun.   ref.   wk., 

327-2S;  legal,  52-53,  52n,  53n; 

Hupper's  list,  52-53,  52n,  53n; 

in  Lib'y  of  Cong.,  52-53,  52n, 

53n. 
Subjects  on  which  legis.  may  be 

expected,  sources  for,  195-98. 
Supt.  of  docs.,  33,  33n,  91,  93, 

112,  127n,  191,  288,  322;  sale 

of  court  reports  by,  34,  34n. 
Supreme  Court  Reporter,  16;  Re- 
ports, U.  S.,  15;  sale  of,  33. 
Survey,  128,  145,  188,  300,  322. 
Surveys,  local,  308. 
Sweating,    205;    and    the   Legal 

Min.  Wage,  204;  System,  Bib. 

204-7. 
Sweet  &  Maxwell,  42,  60. 
Swisher,  B.  F.,  279. 
Syracuse  pub.  lib'y.,  313. 

Tables  and  Index,  (des),  112;  of 

cases,  for  A  mer.  Digest,  (covers 

1658-1906),  22;  for  Eng.  Cases 

to  1897,  32. 
Tacoma,  Mun.  Bui.  303. 
Talbot,  Chas.  H.,  255,  327,  340, 

341. 
Tarde,     Gabriel     Raoul    de    la 

Grasserie,  62,  64. 
Tariff  laws,  dec.  comp.  of,  101; 

Series,  107. 
Taylor's  Citations  (N.  Y.),  23. 
Taxation  of  Corp.,  doc.  on,  109, 

122;  internal  (France),  116. 
Taxes,   separation    of,   doc.   on, 

270. 
Taxing    corps,    in    the    various 

states,  102. 


Teich,  Emma  L.,  163. 

Tendencies  in  legis.  ref.  wk., 
228-33. 

Terry,  Chas.  Thaddeus,  156, 158 

Texas,  bill-drafting  in,  171 
cities,  model  charter  of,  276 
legis.  procedure  in,  213n 
legis  ref.  in,  74,  232;  law, 362 
pubs.  386;  liby.  and  hist 
comm.,  170,  231n;  libs.  doc. 
list,  127;  mayor's  assn.,  302 
Univ.,  mun.  ref.  in,  244,  260, 
276;  pubs.  422. 

Text  books  legal,  28-29;  as 
authoritv,  29n;  classification 
of,  48-49;  local,  29;  legal,  shelf 
arrangement,  57. 

Thayer,  19. 

Theses,  indexes  to,  301n. 

Third  reading,  214. 

Thomas,  Thaddeus,  P.,  301. 

Thompson,  J.  David, 170n,  217n, 
231n. 

Thorpe,  Francis  Newton,  35, 
35n,  82-83. 

Thring,  373. 

Tiedeman,  29. 

Tilden  Com.  270. 

Tobacco  Industry',  doc.  on,  102. 

Toronto,  Univ.  Studies,  301; 
mun.  ref.  in,  242,  259. 

Torrens  System  of  Registration 
of  Land  Titles,  155. 

Tourtoulon,  P.  de,  63. 

Townes,  J.  C,  40. 

"Trade  Boards  Act,"  202-03. 

Trade  School  for  Girls,  Worces- 
ter, Mass.,  106. 

Training  school  for  public  ser- 
vice, 337,  337n. 

Transportation  by  water  in  U.  S., 
doc.  on,  102. 

Trask,  John  W.,  278. 

"Travel"  of  a  bill,  how  indicated, 
216. 

Treasury,  Comptroller  of.  Treas- 
ury Decisions,  20, 34n ;  sale  of, 
34,  34n. 

Treaties,  25-26,  81 ;  comp.  of  U. 
S.,    25-26;    in    force,    comp. 


Index 


465 


of,  36n;  current,  where  pub., 
26, 26n,  87 ;  where  pub.  87 ;  with 
Indians,  124;  "treaty  making 
power,"  87-88;  Series,  26,26n, 
87. 

Trend  of  legislation,  197,  274; 
1890,  120. 

Treleven,  John  E.,  247n. 

Trials,  bib,  24;  shelf  arrange- 
ment, 57. 

Tribune  Almanac  and  Pol.  Regis- 
ter, 138;  Almanac  (Chicago), 
138. 

"Trinity"  (des),  18. 

Tucson,  77. 

Typhoid  Fever,  271n. 

Uniform  Legislation,  1.54-55, 
1.54n,  155n;  Records  and  Re- 
ports, 106. 

Union  of  Canadian  municipali- 
ties, 295,  298,  343. 

U.  S.  Gov't.  Docs,  in  Small  Libys. 
(Ed.  3,  rev.)  (des),  92;  see 
docs.  U.  S. 

U.  S.  Catalogue,  3d  ed.  163,  166, 
312;  docs,  noted  in,  114. 

Universities,  legis.  ref.  in,  76-77, 
232;  mun.  ref.  in,  243-45, 
243n-45n;   "Sham",   146. 

University  bureaus  of  mun.  res. 
(arts  on)  429-30. 

University     of,     see     names     of 
states  and  cities,  i.e.  111.,  Univ., 
Chi.  Univ. 
University    "Studies",    145;    on 
mun.  topics,  301. 

Upson,  L.  D.,  254,  351. 

Utah,  min.  wage  in,  200-01. 

Unwritten  law,  12;    def.  11. 

"Usual  Number,"  94. 

Valuation   of   Pub.   Serv.    Corps. 

(Whitten),     249n;     of      Pub. 

Utility  Properties,  293. 
Vanni,  I.,  63. 
Vecchio,  G.  del,  63. 
Veiller,  Lawrence,  269,  293. 


Vermont,    bill-drafting   in,    171; 

doc.     index,     126;    legis.    ref. 

appropriations,  226;  legis.  ref. 

in,  74;  law  362-64,  pubs.  386; 

revisers  of  bills,  196. 
Vertical  files,  88;  classification  in, 

325;  filing,  195. 
Veto  and  Approval  of  Bills,  212n; 

veto  power,  69. 
Vice  Comm.  207. 
Victoria,    bill-drafting    in,   377; 

min.  wage  law,  202. 
Vigilance,  299. 
Virginia,  legis.  ref.  in,  76;  pubs. 

386. 
Votes  in  Constitutional  Amend- 
ments, 119. 

Wages    and    Hours    of    Labor, 

102n;  doc.  on,  98. 
Walker,  29. 

Wallace,  J.  W.,  14n,  16. 
Walla  Walla,  Whitman  College, 

mun.  ref.  in,  261. 
Wallingford,    Conn.,    mun.    ref. 

in,  258. 
Walter,  Frank  K.,  143n. 

Walton,  37n. 

War  Dept.,  273. 

Washington,   D.   C,  225;  gov't 

of,    290;    mun.    ref.    in,   2.58; 

reports     of,      272.      Social 

conditions,    doc.    on     (des), 

99. 
Washington,  (State)  Indus.  Ins. 

Dept.,    (doc.   on),    122;    legis. 

ref.  in,  74,  77,  232;  Univ.  of, 

77;  bur.  of  mun.  and  legis.  res., 

77;  min.  wage,  200-01,  201n; 

Univ.  mun.  ref.  in,  244,  244n, 

261;  pubs.  422. 
Water     Laws,     doc.     on,     123; 

power   dev^elopment,  doc.  on, 

102. 
Watkins,  Sloan  D.,  320. 
Wayne  Co.,  Bur.  of  Mun.  res., 

261  n. 
Webb,  206. 


466 


Index 


Weber,  Adna  F.,  307. 

Webster,  T.  Lonsdale,  130. 

West  Australia,  bill-drafting  in 
377-78;  min.  wage  law.,  202. 

West  Pub.  CO.,  42,  53,  53n; 
Digests,  52-53. 

Westchester  Co.,  Res.  Bur., 
261n. 

Western  Xew  Eng.,  305. 

Western  Reserve  Univ.,  mun. 
ref.  in,  244,  261. 

Whinery,  269. 

Whitin,  E.  Stagg,  135. 

Whitlock,  Brand,  135. 

Whitman  College,  mun.  ref.  in, 
244,  261. 

Whitten  classification,  190-91; 
Rob't  H.,  73n,  191,  195,  249, 
249n,  294,  325. 

Wholesale  Prices,  102n. 

Wigmore,  J.  H.,  40,  62,  63,  162. 

Wilco.x,  Delos  P.,  140,  289,  294, 
312. 

Wildy  &  Co.,  42. 

Wilkes  Barre,  pub.  lib.,  319. 

Williamson,  30;  Dr.  C.  C,  205; 
297,  297n,  298n,  317. 

Willoughby,  W.  W.,  141. 

Wilmington,  Inst.  Free  Librarv, 
314. 

Wilson,  H.  W.  Co.,  113,  168; 
Woodrow,  137,  140,  224. 

Winthrop,   Talbot,   163. 

Wire,  G.  E.,  on  classification  for 
law  libs.,  48-49,  49n. 

Wisconsin,  139;  bill-drafting  in, 
171;  free  lib'y  comm.,  78,  170, 
173,  196,  217n,  219,  314; 
training  class,  217n;  Idea,  139; 
legis.  ref.  \vk.,  74;  legis.  ref. 
dept.,  173-83,  227,  232,  275, 
330;  appro.  184,  226;  bill- 
drafting,  173-83;  circular 
letter  of,  196-97;  classification, 
190;  forms  used,  177,  179,  181, 
183;  organization,  173-83; 
legis.  ref.  in,  74,  78,  173-83; 
law,  364-65;  pubs.  387;  lib'y 


comm.,  circular  of  information, 
198ni  min.  wage  in,  200-01, 
201n;  miin.  ref.  liby,  325; 
municipalities,  league  of,  301; 
pub.  aflf.  St.  bd.  of,  121;  st. 
hist.  soc.  lib'y.  co-operation 
with  legis.  ref.  dept.,  184;  tax 
comm.,  121;  Univ.  of.,  173, 
175;  co-operation  with  legis. 
ref.  dept.,  184;  lib'y  school, 
221,  338-89;  mun.  ref.  in., 
243,  243n,  261;  pubs.  422; 
Univ.  Bui.,  301;  water  powers, 
forestry  and  drainage,  spec, 
legis.  comm.,   123. 

Wise,  B.  R.,  135. 

Wolff,  Frank  A.,  343n. 

Woman's  Civic  Club,  304;  In- 
dustrial Council,  207;  labor 
Reports  on  condition  of  woman 
and  child  wage  earners  in  U. 
S.,  19v.,  99. 

Woman's  mun.  league,  304. 

Wood,  A.  E.,  293. 

Woodburn,  Jas.  Albert,  139. 

Woodruff,  Clinton  Rogers,  ed., 
29l,297n,  312. 

Woolley,  Clarence  N.,  156. 

Worcester  County,  (Mass.)  law 
lib'v,  48;  Trade  school  for  girls, 
106. 

Words  and  Phrases  Judicially 
defined,  30. 

Workingmen's  Insurance  in 
Europe,  (des),  134;  Com- 
pensation laws,  123;  Insurance 
and  benefit  funds  in  the  U.  S., 
doc.  on,  102;  Insurance  and 
Compensation,  102n;  Insurance 
and  compensation  systems  in 
Europe,  doc.  on,  102. 

World's  Almanac,  138;  Work, 
144. 

Worcester  Mag.,  305;  (Mass.) 
pub.  lib'y,  314. 

Written  Law,  12. 

Wver,  James  Ingersoll,  91,  96, 
109;  (quoted),  110,  HI;  U.S. 
Gov't,  docs,  (des),  92. 

Wyman  &  Sons,  115. 


Index  467 

Yale  Review,  300.  Year  Books,  municipal,  294-96. 

Year  Book  of  Legislation,  N.  Y., 
73-74;    185,  225,  274;    classi- 
fication of,  190-91;  (des)  118-      Zartman,  200. 
20;  of  Agriculture,  114.  Zion,  E.  R.,  258. 


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